IMPLEMENTATION OF SECTION 41 OF THE
OFFICIAL LANGUAGES ACT
ACTION PLAN 2003-2004

Executive Summary

The Dion Plan in Context

Accountability and Coordination Framework

New Responsibilities

Citizenship and Immigration Canada's Action Plan

Principal Measures - Expected Outputs

• First Objective
  Federal institutions need to be more aware of the spirit and purpose of the Official Languages Act
• Second Objective
  Official language communities need to be consulted by federal institutions with substantial responsibilities for their development; and
• Third Objective
  The Government needs a formal interdepartmental coordination mechanism on official languages. In addition to their respective work on community development, federal institutions must act together and develop the means to support one another.

Have Your Say

Executive Summary

In the January 2001 Speech from the Throne, the government announced its intention to take action to recognize and promote Canada's linguistic duality. The Commissioner of Official Language's most recent annual report also describes the importance of linguistic duality as a Canadian value, efforts by the government over the past year to promote linguistic duality, and the recommended approach to fostering achievement of the objectives of the Official Languages Act (OLA).

Citizenship and Immigration Canada's (CIC) Action Plan 2003 - 2004 is intended to provide guidance for the department to sustain and develop new momentum for Canada's linguistic duality, recognizing it as a value that is central to the Canadian identity and an important aspect of our Canadian heritage. Through this action plan, CIC's policies and programs will continue to support the development of Official Language Minority Communities (OLMCs) and advance the government's comprehensive government-wide strategy for strengthening linguistic duality in all parts of Canada.

In fulfilling its commitments under Section 41 of the OLA, Citizenship and Immigration Canada will focus on the following three main issues outlined in 'The Next Act: New Momentum for Canada's Linguistic Duality' (The Dion Plan) for the fiscal year 2003 - 2004:

• Federal institutions need to be more aware of the spirit and purpose of the Official Languages Act;
• Official language communities need to be consulted by federal institutions with substantial responsibilities for their development;
• The Government needs a formal interdepartmental coordination mechanism on official languages. In addition to their respective work on community development, federal institutions must act together and develop the means to support one another.

These three issues led to the design of the accountability and coordination framework as the cornerstone of the federal government's Action Plan, which sets out the existing responsibilities of federal institutions, and adds new responsibilities which will be incorporated into CIC's approach.

Currently, CIC is working with stakeholders to develop a Strategic Framework to foster immigration to OLMCs (expected by Fall 2003). Over the course of the next year, regions will start developing individual action plans that will flow from the Strategic Framework. So as not to prejudge the outcome of these action plans the department has developed a one-year strategy to respond to its obligations under the OLA. During this planning period, covering FY-2003/04, CIC's efforts to raise its awareness and understanding of the OLA, enhance its interaction with Official Language Minority Communities (OLMCs), and strengthen consultation and support mechanisms for the governmental community will include the following:

• CIC will devise and adopt further measures such as federal-provincial cooperation agreements on immigration that ensure the provision of quality settlement services in support of the social, economic and cultural integration of newcomers into Canadian society in a manner considerate of the needs and concerns of OLMCs;
• Working with partners both internally and externally, CIC will raise its awareness and understanding of the OLA and seek greater insight as to the characteristics of Canada's linguistic duality;
• Continued evaluation and integration of Section 41 commitments within CIC's culture and operations; aided by the department's Official Languages Champion who will continue to promote awareness among senior management and provide broad direction on the implementation of the Official Languages Act;
• Committees working with official language minority representatives will address concerns in a manner that contributes to community enhancement and the preservation of OLMCs. CIC will continue to co-chair the Citizenship and Immigration Canada - Francophone Minority Communities Steering Committee. The work of this committee facilitates the consultation process between the Department and Francophone minority communities to ensure that opportunities to support community development are identified and realized;
• CIC clients will have access to services and materials relating to Official Languages (OL) issues and OLMCs at all CIC offices both in Canada and abroad. CIC will continue to develop and support policies and programs that encourage OLMCs to provide CIC offices with material in an effort to raise awareness and contribute to the preservation of Canada's linguistic duality;
• Departmental representatives will work with provincial, territorial and national Official Language Minority Community organizations to improve the capacity of immigrant service providing agencies to support the needs of francophone immigrants. Both our clients and representatives of OLMCs will be encouraged to participate in CIC activities such as having a representative of the OLMCs participate Citizenship ceremonies and public events as part of departmental efforts to promote Canada's linguistic duality and to support and assist the development of OLMCs; and
• Improve dialogue and information sharing intra and interdepartmentally regarding official languages practices with the goal of building a coordination mechanism. Share best practices through both formal and informal consultations to advance CIC work on community development and as a means for federal institutions to support one another.

The Dion Plan in Context

CIC's Action Plan has been closely aligned with The Next Act: New Momentum for Canada's Linguistic Duality (the Dion Plan) announced in March 2003 in order to provide an appropriate framework for the continued support of Canada's linguistic duality in a coordinated manner.

The Action Plan for Official Languages can be referenced at the following website:
http://www.pco-bcp.gc.ca/aia/default.asp?Language=E&Page=ActionPlan

The Dion Plan provides renewed momentum to Canada's linguistic duality through three principal considerations. These considerations in turn, serve to guide Citizenship and Immigration's policy and program development.

1. Linguistic duality is part of our heritage. A country must be faithful to its roots. Linguistic duality is an important aspect of our Canadian heritage. The evolution that has brought us to the Canada of today has followed different paths. Canada has developed a strong economy, a culture of respect, an effective federation, and a multicultural society. Throughout that evolution, it has remained faithful to one of its fundamental dimensions: its linguistic duality.
   
   
2. Linguistic duality is an asset for our future: It is not only rooted in our past, but also one of the prerequisites for our future success. Canada is extremely fortunate to have two official languages of international stature. English is the official language of 40 countries in the world, and French of 24. The United Nations has English and French among its six languages of work. In addition, the Commonwealth comprises 54 countries, while 48 countries belong to la Francophonie. Canada is privileged to belong to and play a leading role in all three of those international forums. The language most frequently known by Europeans, in addition to their mother tongue, is English (41%), followed by French (19%).
   
   
3. The federal policy on official languages needs to be enhanced: Much has been achieved, but much remains to be done. That is why we need to give new momentum to our policies with the Action Plan. Since the introduction of the official languages policy some 30 years ago, Canada's evolution has confirmed its merits. It has brought us closer to the ideal of "a bilingual Canada in which citizens could enjoy and benefit from our rich French and English heritage.

The Plan: An accountability process and three main axes

In speeches delivered in Whitehorse in June 2002, to the Fédération des communautés francophones et acadienne, and in Quebec City in October 2002, to the Quebec Community Groups Network, Minister Dion outlined three main directions for the five-year Action Plan for Official Languages. The directions are captured within the following Accountability and Coordination Framework.

The Accountability and Coordination Framework

The Government of Canada's Action Plan consists of an accountability framework and three axes for action. The framework addresses the Government's method of work, while the axes are designed to guide its actions. The Government wants to ensure that official languages remain a day-to-day priority in the design and implementation of public policy and government programs. Accordingly, it has examined its decision-making process regarding official languages. This internal reflection, which has been conducted in consultation with communities and the Commissioner of Official Languages, has led the Government to adopt the accountability framework, which is reproduced in Annex A of the Action Plan document.The framework is the cornerstone of the Action Plan.

In addition to this accountability framework, the Action Plan addresses three priority areas. Accordingly, these priority areas are reflected in CIC's approach to fulfilling its commitments under Section 41 of the Official Languages Act (OLA):

Axes 1: Education

The measures in the Plan will address both minority-language education, to help implement section 23 of the Canadian Charter of Rights and Freedoms; and provide for second-language instruction in accordance with the Government's commitments to foster the use of both official languages in Canadian society.

Axes 2: Community development

It is important to us that communities are able to participate fully, in their own language, in Canada's economic and social development. They must continue to contribute to and support our two official languages throughout the country. The measures considered will enhance communities' access to public services in both official languages, mainly in the areas of health, early childhood development and justice.

Axes 3: An exemplary public service

The federal government cannot play a leadership role if it does not lead by example. The improvements sought will address the delivery of federal services to Canadians in both official languages, participation of English- and French-speaking Canadians in the federal government, and the use of both languages in the workplace.

New Responsibilities

The government has adopted an Accountability Framework for the Action Plan on Official Languages to ensure that official languages remain a day-to-day priority in the design and implementation of public policy and government programs. The Framework also adds five new responsibilities for federal bodies that will have an impact on their reporting.

By underlining the main responsibilities of departments and agencies, the accountability framework will be a major tool to raise awareness among all federal bodies regarding official languages. But the accountability framework does more than that. While highlighting existing responsibilities, it adds five key elements that will help achieve awareness, consultation and coordination objectives.

First, the framework assigns all federal institutions the new responsibility of better incorporating the official language dimension in their planning. This new responsibility is clearly indicated in article 7: "Henceforth, all federal institutions are required to analyze the impact of proposals contained in memoranda to Cabinet on the language rights of Canadians and federal public servants." This will help ensure that official languages are taken into consideration for all projects, which would modify the Government's policies.

Second, article 17 of the accountability framework describes as follows the process that each institution must follow in its strategic planning and in the general execution of its mandate. It must:

• make employees aware of the needs of minority communities and the Government's commitments;
• determine whether its policies and programs have an impact on the promotion of linguistic duality and community development, from the initial stages of policy development through to the implementation process;
• consult the affected publics, in particular representatives of minority official language communities, in developing and implementing policies and programs;
• be able to describe its approach and show how it has considered the needs of minority communities;
• where an impact has been identified, plan the activities accordingly in the coming year and in the longer term, present the deliverables (taking into account anticipated funding) and provide for results assessment mechanisms.

It is apparent that the community awareness and consultation stage is central to this process.

Third, one of the key elements of the framework, adds horizontal coordination, as described in articles 31 to 44. This coordination will be centred on the Minister responsible for official languages, whose renewed mandate was announced by the Prime Minister on March 12, 2003.

As indicated in the accountability framework, in addition to consulting with communities and coordinating files where the question of official languages is raised, the Minister will facilitate implementation of the Government's Action Plan. He will be supported by the ministers of Canadian Heritage and Justice, the President of the Treasury Board, and other ministers spearheading Action Plan initiatives in their sectors of activity.

The Minister responsible will support the ministers with statutory or sectoral responsibilities for official languages. S/he will work with them to ensure that:

• communities and other stakeholders are consulted at least once a year;
• stakeholders' priorities are communicated to the government;
• official languages issues are brought to the attention of the government; and
• the Government's viewpoint is clearly articulated on topical questions with official languages repercussions.

To properly support Ministers the role of the Committee of Deputy Ministers on Official Languages has been strengthened. Among other things, it is tasked with promoting greater collective accountability for all provisions of the Act. It highlights the links between the different parts of the Act and the Action Plan, and supports the affected ministers in implementing the Plan and in communicating the results to Canadians.

The Minister responsible and the Committee of Deputy Ministers on Official Languages are supported by the Intergovernmental Affairs Secretariat, Privy Council Office. The Secretariat will analyze memoranda to Cabinet and draft policies with respect to their impact on official languages and community development.

Fourth, the accountability framework, in article 44, assigns an expanded role to the Justice Department, which must henceforth examine initiatives, programs and policy directions with a potential influence on official languages, in order to determine the legal implications. This new responsibility is added to those the Justice Department already assumes. It will therefore continue to guide the Government in interpreting language rights, articulating the Government's position in litigation, and exercising specific responsibilities for legislative drafting and access to justice in both official languages.

Fifth, the evaluation of the official languages policy will itself be coordinated. Each department will retain its own responsibilities for evaluation, but there will be an overall evaluation of the measures undertaken in the Action Plan. Article 37 therefore specifies that the Minister responsible "coordinates implementation of the Action Plan, notably the sharing of research tools and evaluation measures." Article 36 provides for "the presentation of interim and final reports on the implementation of the Action Plan" to the government.

This then is the accountability and coordination framework through which CIC will achieve its objectives of official languages awareness, community consultation and policy coordination. But above all, the purpose of the accountability framework is to promote the ability of government departments to work together. It is through collective efforts that the official languages policy has been given renewed momentum in the past two years. And it is through our work together that the Action Plan will yield the maximum results for Canadians.

CIC's Action Plan

As noted in Citizenship and Immigration Canada's (CIC) 2002-2003 Report on Progress on Section 41 of the Official Languages Act (OLA), many initiatives toward implementing CIC's requirements have been accomplished. However, the work must continue. This Action Plan serves as a blueprint for renewing and continuing the Department's efforts toward bringing greater awareness of the spirit and purpose of the OLA. The Principal Measures within this first objective demonstrate priorities that include strengthening the system for implementing the Act within the Department, for example by mobilizing management and further transforming the organizational culture at CIC. These actions are critical to ensuring that the Department understands its role with regard to linguistic duality and the development of official language communities.

Specific to raising awareness of the spirit and purpose of the Act, CIC has made and will continue to make advancements in its efforts to include official languages components within all pertinent policy and program initiatives. The Department will continue to focus on the goal of emphasizing Canada's linguistic duality when implementing changes to the methods by which services are delivered to clients in Canada and abroad. To this end, the Departmental Delivery Network will ensure that all publications (forms, kits and web information) will serve to build awareness of the purpose and spirit of the OLA and place an appropriate emphasis upon Canada's linguistic duality, in addition to being bilingual.

Discussion of CIC's Official Languages commitments will continue to take place at key meetings at National Headquarters and in the regions to further the awareness of the spirit and purpose of the OLA. Staff will be encouraged to promote awareness of Canada's linguistic duality throughout the Department and with external contacts toward fulfilling CIC's commitments and responsibilities to the extent possible with regards to the recognition and use of Official Languages.

CIC continues to co-chair the Citizenship and Immigration Canada - Francophone Minority Communities Steering Committee. This Steering Committee, launched in March 2002, has completed the task of evaluating the capacity to welcome new French-speaking immigrants in six communities: Moncton, Ottawa, Sudbury, Edmonton, Winnipeg and Vancouver. A phase II of the study is in progress and will assess the capacity of five French-speaking minority communities to accommodate newcomers and the perception of these communities vis-à-vis immigration in urban and semi-rural environment. A strategic framework for supporting increased immigration of French-speaking persons being prepared by the committee will be made public in the Fall 2003.

Integration Branch will ensure that research studies are reviewed in order to identify findings regarding the integration of newcomers in the Francophone minority communities. Policy presentations and discussions will, where appropriate, reflect the spirit and purpose of the OLA.

Refugee Branch will seek to amend official languages clauses in the resettlement contribution program agreement so that they promote awareness of the spirit and purpose of the Official Languages Act. The Branch will also ensure that agreement holders engage in the promotion of official languages and services to the public in both official languages.

British Columbia and Yukon Region is learning from Manitoba's actions of promoting the Official Languages Act through their Settlement programming and re-newed immigration agreements. The region continues to work with its partners, including the Fédération des francophones de la CB, Canadian Heritage through the Interdepartmental Partnership with the Official Language Communities (IPOLC), and the provincial government to raise awareness of the OLA. The region will collaborate with CIC-NHQ to implement new official languages clauses in upcoming contribution agreements.

Atlantic Region will consult formally with the principal OLM community organizations in the four Atlantic Provinces during 2003-04 in collaboration with provincial immigrant service providers to improve dialogue and information sharing regarding the promotion of the Official Languages Act among all parties.

Ontario Region will raise awareness of both the Host Program in Greater Toronto Area and the Settlement Workers in School (SWIS) Program and will implement a project to develop material specific to the French Language Instruction for Newcomers to Canada (LINC) program in Ottawa.

Official language minority communities (OLMCs) have asked to be consulted systematically by federal institutions that are developing policies or priorities on linguistic duality, to be informed of actions being considered in order to achieve those priorities, and to be kept abreast of actions undertaken and the results achieved over a given period.

Successful integration of new immigrants into OLMCs requires mutual respect of cultures and origins, both ability on the part of newcomers to adapt and willingness on the part of the host community to welcome immigrants. The provision of integration services is a joint responsibility of both CIC and OLM communities. For this to occur, CIC must consult with OLMCs to develop supports that increase the successful establishment of new arrivals in OLMCs.

CIC recognizes the advantages of working in partnership with OLMCs in order to promote their development and increase immigration to these communities. Of course, maintaining open dialogue with these communities ultimately permits the expansion and maintenance of official languages throughout the country, and serves to promote the objectives of the OLA.

To this end, CIC will continue to consult with OLMCs and to implement appropriate changes in the methods by which those services are delivered to clients in Canada. In 2003-2004, CIC will build on its efforts to consult with Canada's OLMCs with respect to potential immigrants and visitors and to inform new Canadians about Canada's linguistic duality and heritage.

CIC will continue to co-chair the CIC-Minority Francophone Community Steering Committee to ensure on going consultation and partnership with OLMCs and the sharing of information, awareness and mutual support.

CIC will display informational brochures and packages promoting OLMCs; this will publicly reinforce the consultative relationship between CIC and OLMC partners. Information will be developed in partnership with OLM Community organizations and provide them with opportunities to promote their communities worldwide.

When and where possible, CIC will ensure that all external communications products (publications and web materials) reflect the existence of the partnership between government and OLMCs in achieving the objectives of the Official Languages Act. Communications will be centered around CIC's activities with OLMCs and on efforts to encourage their continued involvement.

In partnership with the official language minority communities, Integration Branch has taken steps to facilitate the integration and the settlement of newcomers within OLMCs. Integration Branch will also identify possible research activities for the CIC Research Network that would help increase the capacity of Francophone minority communities to integrate newcomers.

Throughout its offices overseas, CIC's International Region will continue to distribute information about OLMCs obtained through the Department's Official Languages Network. Also, in conjunction with Canadian Heritage, Human Resources Development Canada and Industry Canada, a viable data link will be established electronically providing information to potential immigrants, students, visitors and temporary workers, about the Canada's linguistic duality and minority official language organizations across the country.

All citizenship ceremonies will emphasize Canada's linguistic duality, and to the extent possible, demonstrate the level of partnership between CIC and the minority communities. OLMCs will continue to be invited to participate either as hosts, guest speakers, or by assisting in the organization of special receptions at ceremonies. CIC will engage OLMCs to participate in Citizenship Week activities.

Ontario Region will liaise with OLM Communities in Ontario and provide access to information materials and reports in support of building a stronger consultative relationship. The region will implement a new curriculum for its Language Instruction for Newcomers to Canada (LINC) program acknowledging the French community and demonstrating the ongoing partnership. This will support the development and promotion of the relationship between the department and the official language minority communities and assist in making clients aware of the various services available to them.

Atlantic Region will work with its partners in a more consultative manner, including the Official Languages Committee of the Nova Scotia Federal Council, to improve its efforts in providing proactive services to OLM communities in Nova Scotia. The Region will continue to collaborate with other government departments (OGDs), including Canadian Heritage, to consult official language minority communities concerning immigrant language services and the attraction of Francophone immigrants to Atlantic Canada.

British Columbia and Yukon region will utilize its seat on the interdepartmental Official Languages Act Part 7 sub-committee hosted by the Department of Canadian Heritage as a forum for sharing innovative ideas and practices for growing partnerships with OLMCs. A representative from the francophone community as well as from the office of the Commissioner of Official Languages sits on this committee where suggestions on how to reach the francophone community are exchanged. The region will continue its partnership with groups such as the Societé de Développement Économique and the Fédération des Francophones de la C.B. to advance and promote the benefits of OLMCs. While initial consultations were only preliminary, the next round of meetings will reinforce the importance of immigration to the future of the communities and to make the local immigration portfolio one of a higher priority. A settlement research project should be finalized in 2003-04. BC / Yukon region will pursue official language clauses in ongoing negotiations to renew the existing Canada-British Columbia immigration agreement.

It is imperative that the Government develops internal mechanisms to ensure consistency of its official languages policies and programs. It is also important that these support mechanisms allow for ongoing information-sharing among federal institutions, and lead them to work together for the benefit of linguistic duality.

Accordingly, the three objectives of the accountability framework are to raise awareness of the Official Languages Act in all federal institutions, strengthen consultation mechanisms with communities, and establish overall coordination of the government process on official languages.

CIC will continue to actively consider the interests of the OLMCs when developing programs and policies, promote awareness of relevant departmental activities among minority language organizations and make efforts to ensure that departmental programs and policies recognize the linguistic duality of Canada. Where feasible, it will share these best practices with OGDs and Agencies of government.

CIC will publish research and information on the linguistic integration of immigrants through many channels, including through OGD partners. This will help CIC to address the barriers to integration faced by OLMCs and inform prospects for public policy in return. CIC will encourage participation by representatives of partner organizations in public consultations undertaken by CIC on policy and legislative changes. The department will also address the views and concerns of government partners on changes to departmental legislation, policies or programs.

Strategic Directions and Communications will provide coordination between Privy Council Office, Canadian Heritage and CIC and its partners to ensure that CIC policies are consistent with policies and concerns of the Government of Canada, and that CIC benefits from the experiences of other departments.

Selection Branch will examine ways of making the selection process better able to support the development of OLMCs by consulting OGDs. Federal-provincial immigration agreements have a direct effect on the selection and recruitment of immigrants. CIC will work closely with OGDs and provincial governments that have signed immigration agreements to ensure that the objectives of the Official Languages Act are addressed and best practices are shared. The importance of supporting intergovernmental coordination will be discussed with provinces during the negotiations surrounding these agreements.

Through the Immigration-Contribution Accountability Measurement System (iCAMS), data will be collected on 'newcomers' knowledge of official languages and the communities in which they are settling. As an intradepartmental coordination mechanism, this data will allow for the analysis of communities in which Francophone newcomers are most likely to establish, thus advancing the obtainment of objectives cited in the OLA.

The Metropolis Project [note 3] is an international forum for comparative research and public policy development about population migration, cultural diversity and the challenges of immigrant integration in cities in Canada and around the world. In an effort to sustain a viable coordination mechanism, Metropolis will continue its efforts to stimulate the creation of an international policy-research network on migration policy issues specific to French speaking communities and to keep stakeholders and the Commissioner of Official Languages informed.

Notes:

1. The Metropolis Project is an international forum for research and policy on migration and cities. The virtual library is located at:http://canada.metropolis.net/frameset_e.html.
2. CIC's French internet site is located at: http://www.cic.gc.ca/francais/index.html. The English internet site is available at: http://www.cic.gc.ca/english/index.html

3. http://www.canada.metropolis.net

Have Your Say

CIC's Action Plan describes our efforts to support the vitality and growth of official language minority communities (OLMCs) and to foster the recognition and of both Official Languages Act and Canada's linguistic Duality. This plan is also intended as a vehicle for communicating and consulting with these communities and with others interested in the implementation of Section 41 of the Official Languages Act.

Please take a few minutes to complete this questionnaire. We welcome your comments and will consider them when developing future Action Plans.

• What should CIC do to support and grow awareness of the spirit and purpose of the Official Languages Act?
  
  
• What should CIC do to foster the recognition Canada's linguistic duality?
  
  
• How is immigration important to the vitality and development of OLMCs?
  
  
• This report describes a variety of proposed measures. Which proposed measures do you believe are most relevant or potentially effective? Why?
  
  What other measures should CIC take to ensure that the interests of OLMCs are integrated into our policies and programs?
  
  
• CIC's clients include prospective visitors, immigrants and citizens in Canada and abroad. What should CIC do to promote awareness among its clients of the consultative relationship it has with OLMCs and the opportunities for growing that relationship?
  
  
• Other suggestions or comments:

Please return your comments to:

Dan Moorcroft
Consultant
Strategic Policy and Partnerships
Citizenship and Immigration Canada
Jean Edmonds Tower South 18^th Floor, C1867
365 Laurier Avenue West
Ottawa, ON
K1A 1L1
Telephone: (613) 954-8403
Fax: (613) 957-5940
E-mail: dan.moorcroft@cic.gc.ca