Report to/Rapport au :

 

Corporate Services and Economic Development Committee

Comité des services organisationnels et du développement économique

 

and Council / et au Conseil

 

6 April 2010 / le 6 avril 2010

 

Submitted by/Soumis par : Kent Kirkpatrick, City Manager /

Directeur des services municipaux

 

Contact Person / Personne ressource : Renée Bertrand, Manager,

French Language Services Branch / Gestionnaire, Direction des services en français

(613) 580-2424 x 21453, Renee.Bertrand@ottawa.ca

 

City Wide / À l’échelle de la Ville

Ref N°: ACS2010-CMR-OCM-0002

 

 

SUBJECT:

Report on french language services

 

 

OBJET :

Rapport sur les services en français

 

REPORT RECOMMENDATION

 

That the Corporate Services and Economic Development Committee (CSEDC) recommend that Council receive this report for information.

 

RECOMMANDATION DU RAPPORT

 

Que le Comité des services organisationnels et du développement économique (CSODÉ) recommande au Conseil de prendre connaissance du présent rapport. 

 

 

EXECUTIVE SUMMARY

 

The purpose of this report is to provide CSEDC and City Council with a status update on the progress made in 2008 and 2009 with respect to the advancement and ongoing implementation of the City’s Bilingualism Policy. The report highlights some of the successes and challenges experienced in 2008 and 2009 and identifies actions to be undertaken by management to address these in 2010.

 

In keeping with the historic presence of Francophones in Ottawa and the establishment of laws governing language rights in Ontario and in Canada, the City enacted, in 2001, Ottawa By‑law 2001‑170 and the Bilingualism Policy (2001), which recognized the equality of English and French language groups and sets out the rights of residents and municipal employees to choose the language in which they wish to be served by or conduct business with the City.

 

On the 2006 Census, about 143,220 persons state that French is their mother tongue or the first official language they learned, representing almost 18 per cent of Ottawa’s total population.

 

In January 2009, Council and the City’s senior management reiterated their commitment to bilingualism and the delivery of quality services in both English and French. This was in response to two reports, one from the French Language Services Advisory Committee (FLSAC), and the Le Blanc and LeBlanc report, which provided an assessment of the implementation of the Policy. While undertaking concrete actions, the City also indicated that the delivery of services in French would be a component of the work plans being developed by all municipal departments in the pursuit of service excellence.

 

Management’s response to these reports strengthened the implementation and governance of bilingualism as a priority and an integral component of all City planning exercises and service delivery.  The same approach is also recommended for all City committees, boards, partnerships and decision‑making bodies, so that these bodies consider and are guided by the spirit of the Policy.

 

As of 31 December 2009, about 2,845 or 20 per cent of budgeted City positions were designated as calling for some knowledge of both languages. Policies and procedures have been implemented to advance the ongoing management of position designations.

 

The Organizational Development and Performance Department and the French Language Services Branch collaborate to support the development of annual departmental work plans ensuring these plans reflect the intent of Article 1.6 of the Policy, which includes measures for improving French-language services.

 

To successfully reach the language proficiency levels required of their positions, the City’s managers need to prioritize second‑language training. For all employees, there are 3 annual language training sessions with an average enrolment of 243 per session. Typically more than 70 per cent of the participants successfully complete their training levels.

 

Translation Services, a division of the French Language Services Branch (FLSB), receives an average of 70 translation or revision requests per business day. This means that the City translates or revises more than 17,400 pages of text annually.

 

On March 25, 2009, the Mayor kicked off a campaign aimed at increasing awareness of bilingualism among municipal employees. The slogan for this campaign is: Une Ville, deux langues / One City, two languages.

 

This report outlines several examples of the French delivery of City services such as improving the funding of French child care services, a significant increase in recreational services and bilingualism at public events and consultations.

 

French Language Services is also responsible for receiving and processing complaints regarding the absence, or quality, of services in French. FLSB received 26 complaints in 2008 and 37 complaints in 2009.  Complaints are generally due to oversight or a lack of understanding of the Policy.

 

Since 2002, the Department of Canadian Heritage and the City of Ottawa have an agreement to improve French-language services and the bilingual character of Canada’s capital. This report highlights several examples of projects carried out in 2008 and 2009 as part of this agreement.

 

In conclusion, the period covering 2008 and 2009 has been a period of substantial evolution in the implementation of the Bilingualism Policy at the City. Additionally, as identified in this report, management will continue to advance this policy as a priority through the actions and directions identified for 2010.

 

 

RÉSUMÉ

 

L’objectif de ce rapport est de faire état au CSODÉ ainsi qu’au Conseil municipal des progrès accomplis en 2008 et en 2009 au chapitre de l’avancement et de la mise en œuvre continue de la Politique de bilinguisme de la Ville d’Ottawa. Ce rapport présente les succès atteints et les difficultés éprouvées en 2008 et en 2009, tout en énumérant les mesures qui seront entreprises par la direction en 2010.

 

En raison de la présence historique des Francophones à Ottawa et de la mise en place des lois régissant les droits linguistiques en Ontario et au Canada, la Ville adoptait en 2001 le règlement 2001‑170 et la Politique de bilinguisme, qui reconnaissent l’égalité des groupes de langue française et de langue anglaise, et établissent le droit des résidents et des employés municipaux de choisir la langue dans laquelle ils désirent être servis par la Ville ou mener des affaires avec elle.

 

Au recensement de 2006, quelques 143 220 personnes déclarent le français comme langue maternelle ou comme première langue officielle parlée, ce qui représente tout près de 18 p. 100 de la population totale d’Ottawa.

 

En janvier 2009, le Conseil municipal et la haute direction de la Ville réitèrent leur engagement envers le bilinguisme et la prestation de services de qualité en français comme en anglais. La Ville répond ainsi à deux rapports, soit le rapport du Comité consultatif sur les services en français (CCSF) et le rapport Le Blanc et Leblanc, établissant un bilan de la mise en œuvre de la politique. Tout en s’engageant à prendre des mesures concrètes, la Ville indique de plus que la prestation de services en français sera l’une des composantes des plans de travail que les divers services municipaux sont à élaborer dans la poursuite de l’excellence des services.

 

La réponse de la direction à ces rapports a renforcé la mise en œuvre et la gouvernance du bilinguisme comme priorité et partie intégrante de tous les exercices de planification et tous les moyens de prestation des services de la Ville. Cette démarche est également recommandée pour tous les comités, conseils, partenariats et entités décisionnelles de la Ville, de façon que ces organismes prennent en compte l’esprit de la politique et soient régis par lui.

 

Au 31 décembre 2009, quelque 2 845 postes budgétés par la Ville, soit une proportion de 20 p. 100, sont désignés comme demandant une connaissance des deux langues. Des politiques et des procédures ont été mises en place pour promouvoir la désignation continue.

 

Le Service du développement et du rendement organisationnels et la Direction des services en français appuient l’élaboration de plans de travail annuels pour les services, veillant à ce que ces plans reflètent l’esprit de l’article 1,6 de la politique, qui prévoit des mesures d’amélioration des services en français.

Pour atteindre avec succès les niveaux de compétence linguistique de leur poste, les gestionnaires de la Ville devront prioriser la formation en langue seconde. Pour ce qui est de l’ensemble des employés, 243 de ceux-ci ont en moyenne participé à l’une ou l’autre des trois sessions annuelles de formation en langue seconde. En moyenne, plus de 70 p. 100 d’entre eux ont complété leur niveau de formation.

 

Le service de traduction de la Ville, une des composantes de la Direction des services en français, reçoit en moyenne 70 demandes de traduction ou de révision par jour ouvrable. C’est dire que la Ville traduit ou révise plus de 17 400 pages de textes par année.

 

Le 25 mars 2009, le maire donnait le coup d’envoi à une campagne de promotion du bilinguisme à l’intention des employés municipaux. Le slogan de cette campagne est « Une Ville, deux langues / One City, two languages ».

 

Le présent rapport donne quelques exemples de services offerts en français par la Ville. Il est entre autres question de l’accroissement du financement des services de garderies, de l’importante augmentation des services de loisirs en français et du bilinguisme lors des événements et consultations publics.

 

La Direction des services en français est aussi chargée de recevoir et de traiter les plaintes concernant l’absence ou la mauvaise qualité des services en français. La DSF a reçu 26 plaintes en 2008, comparativement à 37 en 2009. Les plaintes peuvent être attribuables à un oubli ou à une méconnaissance de la Politique.

 

Depuis 2002, le ministère du Patrimoine canadien et la Ville d’Ottawa disposent d’une entente visant à améliorer les services en français et le visage bilingue de la capitale du Canada. Ce rapport présente quelques exemples des projets menés au cours de 2008 et de 2009 dans le cadre de l’entente.

 

En conclusion, les années 2008 et 2009 ont été marquées par une évolution substantielle sur le plan de la mise en œuvre de la Politique de bilinguisme de la Ville. Comme on pourra le lire dans le rapport, la direction poursuit ses efforts pour faire de la politique une priorité. En font foi les mesures et les orientations adoptées pour 2010.

 

 


BACKGROUND

 

Ottawa has a long and well-established history of bilingualism. Étienne Brûlé, known as the first Franco‑Ontarian, first set foot on Ontario soil in 1610.

 

At the inception of Bytown, a large French‑speaking community was already present in the region. In fact, the region’s bilingualism was one of the influential factors in the decision to make Ottawa the Capital City of Canada. In 1872, Ottawa was led by the first of many French‑Canadian Mayors, Eugène Martineau.

 

Over the years, municipalities throughout the region often sought to offer their residents services in both English and French. For example, in the late 1960’s the former City of Ottawa introduced a language Policy. Similar measures were enacted in Vanier, Cumberland and Gloucester.

 

In 1969, Canada enacted the Official Languages Act and English and French became the official languages of the country.

 

The Province of Ontario enacted the French Language Services Act in 1986. This Act allows, among other things, Ontario municipalities to introduce legislation on French-language services.

 

On May 9, 2001, the current City of Ottawa enacted By‑law 2001‑170 and a Bilingualism Policy.

 

The purpose of these measures was to:

·      Recognize the equality of English and French speaking groups and citizens;

·      Establish the right of residents and municipal employees to choose the language (English and French) in which they wish to receive services, or conduct business with, the City;

·      Designate bilingual positions to enable effective language specific service delivery;

·      Govern the delivery of all municipal services; and

·      Define the accountability of senior executives with respect to the management of services in both languages.

 

In 2005, at the request of the City of Ottawa, the Ontario Legislature amended the City of Ottawa Act, making it mandatory for the City to “adopt a policy respecting the use of English and French languages in all or specified parts of the administration of the City and in the provision of all or specified municipal services by the City”.

 

Additionally, in response to a legal challenge initiated by the Canadians for Language Fairness in 2006, Madam Justice Métivier of the Superior Court of Ontario ruled that the City’s bilingualism Policy was both validly enacted by City Council and did not constitute a breach of Canadian Charter of Rights and Freedoms.

 

Also, in 2008 and 2009, various municipal bodies, including the Ottawa Public Library Board, Police Services Board and the Ottawa Police Service, adopted policies and procedures on bilingualism.

 

According to the 2006 Canada Census, Ottawa is home to more than 311,230 French‑speaking citizens, representing more than 39% of the City’s total population. Moreover, 17.9 per cent of the population declares French as its mother tongue or as its first official language spoken, representing 143,220 people.

 

Ottawa Francophones form a lively, vibrant community that, over the years, has built up a network of French‑language institutions and organizations in the areas of health, the economy, arts, culture, education, social and ‑community services, etc.  The year 2010 marks the ten-year anniversary of the implementation of performance measures relating to bilingualism at the City of Ottawa.

 

City Council and senior managers reiterated their commitment to delivering quality municipal services in English and French in January 2009, in response to two reports, which assessed the implementation of the Bilingualism Policy, and in particular assessed the quality French services to residents and visitors to Ottawa.

 

The first of these reports – prepared by two consultants at the request of the French Language Services Advisory Committee (FLSAC) – was entitled “Road Map: Toward Excellence in the Application of the City of Ottawa’s Bilingualism Policy”, also referred to as the Le Blanc and LeBlanc report. The report proposed a dozen recommendations to expedite the implementation of the Policy and improve the active offer of quality French services to residents and visitors to Ottawa.

 

Key recommendations contained in the Le Blanc and LeBlanc report include:

1.      “The sustained commitment of municipal leaders, including both elected officials and senior staff, starting at the highest levels, is indispensable; this commitment must be regularly conveyed in clear terms to both the employees and the public, and day-to-day actions must always confirm its authenticity.”

 

2.      “The proper understanding of the legal framework for ‘equality of rights and privileges for both linguistic groups’ (Bilingualism Policy, Section R.1) is the first step in triggering a process of commitment in this regard.”

 

3.      “A thorough understanding of the specific characteristics and needs of the Anglophone and Francophone language communities being served, both of which are becoming increasingly diversified, as well as of their respective territorial distributions, is essential to the informed commitment, effective leadership and administrative involvement that are needed to achieve excellence in internal and external services to the public in English and French.”

 

A second report was also submitted to City Council from the French Language Services Advisory Committee in January 2009. This report highlighted the FLSAC’s reactions to the Le Blanc and LeBlanc report. Echoing the consultants’ recommendations, the FLSAC submitted several recommendations, including the following:

 

Municipal management acted upon the recommendations of these two reports by proposing a series of actions targeting the achievement of service excellence in the provision of services in both languages. These actions are listed in a document entitled Management Response to the Report ‘Road Map: Toward Excellence in the Application of the City of Ottawa’s Bilingualism Policy’, submitted to Council by the City Manager in January 2009.

 

This document reports on action taken over the past few years, including, but not limited to, the following:

·      The designation of bilingual positions;

·      Catch-up increases to funding for daycare services;

·      Improvement to French recreational services;

·      City participation in various projects led by the Francophone community; and

·      Directions concerning the management of public events and community consultations.

 

Additionally, it identifies that management undertakes to:

·      Promote the Bilingualism Policy among its employees and managers;

·      Finalize the designation of bilingual positions; and

·      Develop annual work plans for each of the municipal departments, including actions to improve bilingualism and the delivery of services in French.

 

The following pages highlight examples of actions undertaken by the City in 2008 and 2009 to advance bilingualism in Ottawa.

 

 

DISCUSSION

 

1. Service Excellence in Both Languages

 

In 2007, Council reconfirmed the importance of bilingualism when mid‑mandate strategic plan underscored the fact that the City has two languages for the provision of service.

 

The City’s senior managers adopted the document “We see a City,” which set out the foundation to achieve excellence in the provision of municipal services. While this document makes no direct reference to bilingualism or two languages of service, it can be used to govern the offer of municipal services, in English as well as French, for years to come. The various municipal departments should soon develop work plans that will include measures to improve the delivery of services in French. This quest for excellence was the motivating factor behind the restructuring of municipal services in 2008 and 2009.

 

City staff has received feedback that bilingualism should have been included more fully in certain City documents or initiatives in 2008 and 2009. Examples include:

·      White papers on governance;

·      Various documents proposing the creation of a public health board at the City of Ottawa;

·      Redevelopment of Lansdowne Park; and

·      Procedures for holding public consultations and events.

 

Actions to be undertaken in 2010

 

In the pursuit of service excellence, the management of bilingualism will systematically be integrated within the City’s various planning exercises, including the following:

·      Development of annual work plans by the various municipal departments (also see section 5);

·      Design of a recreational master plan that includes improved services in French (in progress);

·      Update of the City’s cultural and artistic policy (in progress);

·      The encouragement of bilingual services in partnerships developed by the City; and

·      Publication of documents in cooperation with the City for All Women Initiative (CAWI), including one of its publications entitled “Equity and Inclusion Lens; Community Snapshot; Francophones”.

 

2. French Language Services Advisory Committee and French Language Services Branch

 

In addition to Council and executive management, two municipal entities are also mandated to support the management and governance of bilingualism at the City and to recommend actions to Council and/or management that may improve delivery of French‑language services. They are the French Language Services Advisory Committee (which makes recommendations primarily to Council) and the French Language Services Branch (which makes recommendations primarily to management).

 

2.1 French Language Services Advisory Committee (FLSAC)

 

Comprised of volunteers, the FLSAC is entrusted with the mandate of advising the City on matters concerning bilingualism and French-language services. It proposes ways to improve the management and governance of these services.

 

In 2008 and 2009, the key files that received the FLSAC’s attention included the following:

·      Municipal governance, particularly white papers published by the City in the spring of 2009;

·      2008 and 2009 municipal budgets and their impact on the City’s ability to meet its commitments regarding language of services;

·      Funding for Francophone organizations;

·      Bilingualism in public transportation services;

·      Proposal to create a public health board;

·      Development of a recreational master plan; and

·      Opening of the Shenkman Arts Centre in Orléans.

 

2.2 French Language Services Branch (FLSB)

 

Following the restructuring of the City’s administrative structure in 2008 and 2009, the FLSB  (formerly under the City Clerk’s Office) was re-pointed to report directly to the City Manager.

 

Key initiatives undertaken by the FLSB over the past two years include the following:

·      Development of annual work plans for various departments; Designation of Bilingual Positions Project;

·      Management of the agreement between the Department of Canadian Heritage and the City of Ottawa regarding the promotion of French‑language services including One City, Two Languages / Une ville, deux langues” promotional campaign; and

·      Resolution of French‑language service complaints.

 

The French Language Services Branch is also responsible for the City’s Translation Services.

 

3. Designation of Bilingual Positions

 

The Bilingualism Policy states that the City shall designate a certain number of positions as requiring competencies in both languages. This is one of the most substantive ways of ensuring quality service delivery in both English and French.

 

The policy designates all positions from levels one through three as bilingual and day one ready. This is to ensure that senior administrative officials are able to act as spokespeople for the City, while exemplifying leadership in bilingualism for staff.

 

The Policy also requires that positions at all other levels within the organization be reviewed and appropriately designated to enable the City to effectively offer services in both languages.

 

3.1 Executive and Senior Management Positions

 

Prior to the organizational realignment in 2008 and 2009, there were approximately 35 positions within levels one through three. Incumbents in these positions were required to meet the language requirements for their positions on hire or commit to meeting these requirements by taking second‑language training. In some cases where candidates did not meet the position’s language requirements, the hiring was subject to City Council approval. As of December 31, 2009, an exemption by Council is mandated for all level one through three positions where the selected candidate does not meet the language requirement.

 

The realignment of services in 2009 resulted in the elimination, or change in reporting relationship of some level one through three positions. Twenty positions remain at levels one through three and continue to be designated under policy provisions. Additionally, the designation requirements remain unchanged for all positions that were moved from level three to level four as a result of the corporate realignment.

 

Actions to be undertaken in 2010

 

In-keeping with the spirit of the Bilingual Policy, actions are currently under way to set-up a procedure to ensure that all management positions that were designated prior to realignment, and continue to exist in the organization, will remain designated, regardless of their new hierarchical level.

 

3.2 Other Positions

 

In June 2008, the City completed the Designation of Bilingual Positions Project. Upon completion of this project, all City positions underwent an assessment to determine if they  required knowledge of both languages.

 

This project was led by the French Language Services Branch in cooperation with the Human Resources Department, and was completed in consultation with all work units across the corporation.

 

As of July 1, 2008, the City has practiced what is known as continuing designation. As with the Designation Project, the purpose of this approach is to ensure that the City can rely on a workforce that is sufficiently large and qualified to offer quality services in both languages at all times.

 

Continuing designation is covered by a series of policies and procedures that have been approved by Senior Management:

·      Assessment and Testing Procedures;

·      Language Designation of Positions Procedures;

·      Recruitment and Staffing Policy;

·      Second-Language Training Policy; and

·      Second-Language Training Registration Procedures.

 

As of June 2008, other actions have been taken to ensure designation of an adequate number of positions and recruitment of bilingual staff:

·      Standardization of job‑posting procedures and of texts describing language competencies;

·      Entering of information regarding designated positions in the City’s information and data records; and

·      More systematic administration of language tests for candidates applying for designated positions.

 

Table 1 - Designated and Budgeted Positions

Without Library

Day 1

Designated

Total Positions

% Designated

June 2009

1,567

781

14,202

16.5%

December 2009

1,571

791

14,194

16.6%

February 2010

1,576

786

14,251

16.6%

*       A position that is “Designated Day 1 Ready” requires that the candidate meet the language requirements of the position when the candidate assumes his or her position.

**     In the case of a “Designated Bilingual” position, the candidate undertakes to attain the language competencies required for the position by undertaking to take the language training offered to City employees.

***  Variances in the table reflect the changes due to the 2008-2009 municipal realignment.

 

It should be noted that the percentage of designated positions varies widely from one service area to the other, based on the mandate of each service area.

 

In 2008, it was estimated that bilingual employees held more than 80 per cent of designated positions at the City.

 

Actions to be undertaken in 2010

 

In 2010, the Human Resources Department will work with management to systematically assess language competencies of candidates seeking designated positions and of employees in designated positions wishing to be assessed. Results will be captured in the City’s human resource information system.

 

Actions are underway to ensure that the French Language Services Branch will be consulted more systematically on issues regarding the designation of positions, in accordance with the 2008 procedures.

 

Work is ongoing to refine designation procedures for certain multi-incumbent positions (firefighters, bus drivers, paramedics) and to standardize recruitment campaigns and staffing procedures.

 

4. Work Plans for French-Language Services

 

Article 1.6 of the 2001 Bilingualism Policy requires each of the City’s departments to prepare an annual plan to improve the provision of French-language services that will be subject to annual reporting. This requirement remains outstanding, despite a request by City Council in 2007 in this regard.

 

Along with the designation of bilingual positions, annual plans are the main means of implementing the Policy and fulfilling the City’s commitment to improving the provision of French-language services.

 

It is important to note that these annual performance-reporting plans are currently being prepared as part of the departmental plans on service excellence and are targeted for completion by June 2010. This means that actions regarding bilingualism and French-language services will be included in the work plans required from all departments moving forward.

 

The Organizational Development and Performance Department (ODP) is mandated to support the various departments in completing their service excellence annual plans. French Language Services is working with ODP to develop tools and templates for use in the preparation and completion of these plans, as well as tools to support their implementation.

 

In May 2008, senior management defined the direction that would oversee delivery of all municipal departments. In a document entitled “We see a City” it chose service excellence as the objective that would guide the actions of all employees. Having the various departments prepare annual service excellence work plans is part of this direction. As the City of Ottawa has on numerous occasions committed to offering services of comparable quality in English and French, it goes without saying that work plans will include concrete actions to improve French-language services in the overall quest of service excellence.

 

 

5. Language Training

 

Every year, the Learning Centre offers City employees, particularly those in designated positions, the opportunity to improve their second‑language competencies. The City also uses a variety of means to meet the needs of the various learners: group sessions, one‑on‑one tutoring, intact team training, computer‑assisted work, etc.

 

5.1 Executive and Senior Managers

 

A number of senior staff in levels one to three positions, which are designated under the Bilingualism Policy, are required to take language training to improve their French‑language competencies, since they are often called upon to act as spokespersons for the City.

 

As of 2006, there has been a mechanism to assess training participation and progress levels of executive and senior managers.  In 2008, 14 of 38 senior managers from levels one through three were required to take training in French as a second language.  Throughout the course of the year, those senior managers participated on average in 31 hours of training.

 

These figures are a significant increase when compared to 2007 when this group averaged 12 hours of training.

 

Despite an increase in participation in 2008, substantive progress is incomplete due to the following:

·      Many senior manager’s schedules currently allow for very few hours to be dedicated to training;

·      Course participation is not consistent;

·      Senior managers have limited opportunity to practice what they have learned in their courses; and

·      Some managers do not continue to prioritize language training once they have attained the competencies required for their positions.

 

In 2009, senior management participation levels in language training fell once again to an average of 17 hours a year among the staff required to take training.

 

This situation can be explained by the fact that senior managers played key roles in the municipal restructuring, the transit strike, and key City projects, leaving limited time to allocate to learning French.

 

Actions to be undertaken in 2010

 

To improve the progress of senior managers in advancing second-language competency:

·      The City Manager will reinforce the importance of learning the second language as a conditions of employment;

·      The City Manager commits to working with senior managers to develop action plans to optimize training opportunities, including setting minimum levels of language training per year; and

·      Managers who have attained their language proficiency for their positions will be encouraged to continue training to strengthen skill retention.

 

Additionally, the City will:

·      Continue to hire bilingual people for key positions; and

·      Include the learning of both languages in the training offered to level four and five managers being groomed for promotion to higher levels within the organization.

 

5.2 Non-managerial Employees

 

Each year, the City’s Learning Centre offers three 12‑week second‑language training sessions. In 2008 and 2009, an average of 243 employees participated in each of these sessions.

 

Table 2 - Number of Participants in Second‑Language Training

 

2008

2009

French as a second language

644

708

English as a second language

50

58

Total

694

766

Average per session

231

255

 

Success rates are always high year-over-year; this means that the vast majority of those attain their learning objectives and progress to the next level of training.

 

Table 3 - Success Rate of Participants in Second‑Language Training

Session

2008

2009

Average

January to March

74.1%

75.6%

74.9%

April to June

69.4%

71.3%

70.3%

September to December

78.4%

63.5%

69.8%

Annual average

74.0%

69.8%

71.8%

 

Furthermore, in both 2008 and 2009, 88 per cent of French language students said they were satisfied or very satisfied with the second-language training they received.

 

Finally, during the same period, targeted language training projects were carried out among specific employee groups, i.e., bus operators and employees at the Gary J. Armstrong Long‑Term Health Centre and at the Shenkman Arts Centre.

 

Table 4 – Sample of Participants in Second-Language Training by Work Groups

 

2008

2009

Bus drivers *

72

21 *

Gary J. Armstrong Long‑Term Health Centre

28

31

Shenkman Arts Centre **

n/a

7

Total

100

59

*     Language courses for bus drivers were disrupted from January to June 2009 due to the transit strike.

**  The Shenkman Arts Centre opened its doors in June 2009.

 

Intact team language training offered to groups of employees make it possible to delve into language‑related concepts specific to the groups’ required tasks. For example, a training module was developed specifically for bus operators with financial support from Canadian Heritage. The training module was designed to place priority on oral expression such as greeting clients, providing directions, being prepared to react in emergencies, etc.

 

6. Professional Development in French

 

Every year, the City’s Learning Centre offers employees a number of professional development courses in French.

 

The goal of these courses is multifaceted, and includes:

·      Allowing Francophone employees to take training in their mother tongue;

·      Allowing Anglophones employees to further their knowledge of French in a context other than a second‑language course; and

·      Demonstrating a commitment to enabling staff, and encouraging them, to work in the official language of their choice.

 


 


Table 5 - Professional Training in French

 

2008

2009

Number of sessions

12

13

Number of participants

69

85

 

Examples of workshops offered in French:

·      Communicating effectively;

·      Conflict resolution;

·      Improving productivity; and

·      Effective teams.

 

7. Linguistic Services

 

Through Translation Services, the French Language Services Branch offers the City a variety of linguistic services in both languages:

·      Translation from one language to the other;

·      Revision and proofreading of texts in either language;

·      Coordination of the centralized budget for translation and simultaneous interpretation;

·      Maintenance and updating of a terminological information bank specific to the City of Ottawa; and

·      Linguistic advice.

 

To perform these tasks, the FLSB employs three translators, four clerks and some thirty freelance translators.

 

Table 6 - Translation Figures

 

2008

2009

2008–2009 Total

 

Number of texts

Number of words

Number of texts

Number of words

Number of texts

Number

of words

Translations completed by City translators

6,693

906,953

10,697

560,189

17,390

1,467,142

Translations entrusted to freelancers

8,340

5,209,346

8,807

5,663,637

17,147

10,872,983

Total

15,033

6,116,299

19,504

6,223,826

34,537

12,340,125

 

With an average of 350 words per page, the City translates, or revises, more than 17,400 pages of text annually. This also means that Translation Services receives and processes an average of 70 requests per business day.

 

Despite the volume, a survey of Translation Service clients, i.e. the various City departments, showed that 98 per cent of clients are satisfied or very satisfied with services. Similarly, 91 per cent of respondents felt that translation deadlines were satisfactory or very satisfactory.

 


In 2008–2009, the City launched several initiatives to further improve its linguistic services:

·      Development of protocols for urgent translations from Ottawa Public Health (including H1N1 vaccination management), Office of Emergency Management, IT Services and OC Transpo (particularly during the public transportation strike);

·      Improvements to text flow/routing software;

·      Using MultiTrans, set‑up of a virtual bank of high‑quality standard texts in order to speed the translation of similar texts;

·      Continually updating the City’s terminological bank; and the,

·      Creation of a revision/adaptation position within Ottawa Public Health.

 

Lastly, the Language Helpline activities were consolidated in 2008-2009. Accessible to all City employees at extension 21000, this phone line service provides advice on difficulties of the French language and makes it possible to complete short translations.

 

Table 7 - Language Helpline (extension 21000) Inquiries

 

2008

2009

Total

Number of enquiries

1,931

3,018

4,949

 

Findings reveal that demand for this service increased by 56.3% from 2008 to 2009.

 

The Translation Service is increasingly becoming a centre of expertise in municipal bilingualism. Texts translated at the City of Ottawa were made available to the Association des municipalités francophones de l’Ontario (AFMO), which used them to populate information data banks accessible to its members and to members of the Federation of Canadian Municipalities (FCM).

 

8. Promoting Bilingualism

 

In response to two reports submitted to Council and discussed earlier, the City undertook to ensure that employees familiarize themselves with its Bilingualism Policy. This mandate was entrusted to the French Language Services Branch.

 

8.1 Employee Awareness Campaign

 

The “One City, Two Languages / Une ville, deux languesCampaign was launched in 2009.

 

The campaign’s slogan and corporate signature (stylized flower combining the Ontario trillium and the fleur-de-lis of the Francophonie) were designed following consultation with City employees.

 

Launched by the Mayor as part of his Francophone Rendez-vous on March 25, 2009, the campaign primarily involved distributing promotional items and meeting with groups of employees.

 

Promotional items for the campaign:

·      2009 and 2010 calendars;

·      ID lanyards;

·      Two lapel pins;

·      Cue cards on active service delivery in both languages;

·      Tent cards indicating that service is available in both languages, to be placed on a counter;

·      Note pads promoting the Language Helpline service (extension 21000); and

·      A stand and a backdrop in campaign colours.

 

In 2009, over thirty presentations promoting bilingualism were given, bringing together approximately 400 municipal employees.

 

During the “One City, Two Languages” campaign, French Language Services increased the number of visits to senior managers in order to raise awareness of the policy and promote quality delivery of services in French.

 

8.2 Other Activities to Promote Bilingualism

 

Though originally intended for municipal employees, the “One City, Two Languages” material was occasionally used by the general public. The stand and backdrop have been used at job fairs, trade fairs and community events.

 

A few other events at City Hall have also promoted bilingualism: the Mayor’s annual Francophone Rendez-vous and the anniversary of the Franco‑Ontarian flag  (September 25) come to mind. The Rendez‑vous welcomes some 150 community leaders; and Flag Day rallies engaging more than 700 children at City Hall.

 

9. Delivery of French-Language Services

 

Every day, the City of Ottawa offers countless services of all kinds in both of Canada’s official languages. It is impossible to list all of the services that the City offers in French. Instead, we will take a few notable examples that caught our attention in 2008 and 2009.

 

9.1 French-Language Child Care Services

 

The City’s Children’s Services Branch has had a “catch-up” plan in place since 2007 to ensure parity in the funding of English and French-language child care services. Initially, approximately 11 per cent of the City’s expenditures went towards subsidizing French‑language child care services.  Today, more than 16 per cent of municipal subsidies go to these services. Accordingly, the budget share spent on French-language services corresponds to the demographic of Francophone children within our city.

 

9.2 French-Language Recreation Services

 

The number of activities offered in French has continued to rise in the past two years, a trend that has been noted since 2005. Several new initiatives have also been developed to promote these services and to recruit bilingual staff. Lastly, new activities have been offered in response to the needs of target clientele (adults, seniors, and children with special needs).

 

Table 8 - Recreational Activities in French

 

2005 –2006

2006 –2007

2007 –2008

2008 –2009

2005 to 2009 increase

Number of programs offered

789

860

891

1,438

649

     Annual increase in %

- -

9.0

3.6

61.4

82.3

Number of registrations

3,664

4,064

4,719

6,272

2,608

     Annual increase in %

- -

10.9

16.1

32.9

71.2

Registration revenues

255,557

341,537

418,409

556,391

300,834

     Annual increase in %

- -

33.6

22.5

33.0

117.7

% of services offered in French

4.4

4.1

4.4

6.2

1.8

     Annual increase in %

- -

(-0.3)

0.3

1.8

1.8

 

This table illustrates that, between 2005 and 2009:

·      The number of activities offered in French increased by 82.3 per cent;

·      The number of registrations increased by 71.2 per cent; and

·      Revenues from registrations in French‑language activities increased by 117.7 per cent.

 

These increases are a clear indication that Francophones wish to register for activities held in French when the City actively offers them.

 

In 2009, activities offered in French accounted for only 6.2 per cent of total activities offered by the City, however, the demographic weight of Francophones lies somewhere around the 18 per cent mark. Additional activities should continue to increase to close the gap to ensure the volume of activities meets the demographic requirments.

Action to be undertaken in 2010

 

Parks, Recreation and Cultural Services will continue to take concrete measures to further develop and promote French-language programs and services.

 

9.3 Opening of the Shenkman Arts Centre

 

The Shenkman Arts Centre opened its doors in Orléans in June 2009. The Centre has offered a wide array of French‑language recreational courses and live performances since the fall of 2009. Some of these activities are offered directly by the City, while others are offered by community partners, including the Mouvement d’implication des francophones d’Orléans (MIFO), which programs all French‑language performances and some of the recreational courses.

 

Action to be undertaken in 2010

 

The Shenkman Arts Centre management team will continue to take concrete measures to further develop and promote French-language programming and services.

 


9.4 Bus Announcement System

 

In 2008 and 2009, work continued to ensure that, once implemented, the new automated announcement service aboard OC Transpo buses will be fully bilingual. This is a marked improvement from 2003 when the O-Train was first introduced.

 

9.5 Bilingualism at Public Consultations and Events

 

Over the years, City procedures regarding bilingualism at public events and community consultations have remained an ongoing challenge.

 

In December 2009, the City Manager reminded concerned staff of the City’s practices and requested that the Communications Department and the Office of Protocol monitor these activities moving forward.

 

10. Complaints Regarding French-Language Services

 

The French Language Services Branch receives and handles complaints from residents and employees regarding French-language services.

 

Table 9 - Number of Complaints Regarding French-Language Services

2008

26

2009

37

 

When handling a complaint, French Language Services seeks to:

·      Remedy the situation (e.g. redo a sign that has a mistake); and

·      Prevent similar situations from reoccurring.

 

Complaints are often isolated or anecdotal, or are due to oversight for the most part by managers or lack of awareness of the Bilingualism Policy.

 

Some examples include:

·      Public notices distributed in English only;

·      French‑language mistakes on permanent signs in OC Transpo stations;

·      Machine‑translated texts that are widely distributed with no prior proofreading;

·      Licence plates of private snowploughs which, until 2009, were English only, as were taxi plates until 2005; and

·      Employees who respond to a Francophone correspondent in English.

 

Lastly, a few complaints were received with respect to the absence of or insufficient use of French at public events or consultations.

 


11. Cooperation Agreement between the Department of Canadian Heritage and the City

 

Since 2002, an agreement to improve French-language municipal services has been entered into between the Department of Canadian Heritage and the City of Ottawa. Under this agreement, both parties undertake to invest funds for the aforementioned purpose. While Canadian Heritage provides funds directly to the City, the latter undertakes to invest staff time to pursue the various projects selected.

 

The original agreement (2002–2006) was renewed for a two‑year period from 2007 to 2009 and, more recently, for 2009–2010.

 

Here are a few examples of projects undertaken in 2008 and 2009 through this agreement:

·      Improved recreational services in French (better promotion of activities, training of bilingual staff, etc.);

·      Contribution to improved services for itinerants and vulnerable tenants, specifically by supporting the Coalition pour prévenir l’itinérance chez les francophones d’Ottawa (CPIFO);

·      Improved language‑training courses offered by the City, including development of a module specifically dedicated to bus drivers;

·      Support for the Business Assistance Program which, under the responsibility of the Regroupement des gens d’affaires de la capitale nationale (RGA), strives to encourage merchants and businesses to improve services in both languages;

·      Creation of a editor/terminologist position within the Translation Service;

·      Specialized exchanges on the delivery of French‑language services with the Association francophone des municipalités de l’Ontario (AFMO) and the Federation of Canadian Municipalities (FCM);

·      Creation of a revision/adaptation position within Ottawa Public Health;

·      Development of protocols to ensure delivery of emergency services in both languages;

·      More content on the Raconte-moi Ottawa Web site regarding Francophone history in the region;

·      Preparation and on‑line launch of an interactive directory of French‑language socio-community resources  (this Internet site has an English and French search interface); and

·      Contribution to the International Symposium on Bilingual Cities, to be held in Ottawa in March 2010.

 

Many of the projects carried out under this federal‑municipal agreement aim to assist the City in establishing permanent procedures and practices to improve French‑language services. Other projects under this agreement strive to enhance the bilingual character of Ottawa as the Nation’s Capital.

 

For more information or to obtain a complete activity report please contact  the French Language Services Branch, which manages the agreement on the City’s behalf.

 

 

ENVIRONMENTAL IMPLICATIONS

 

There are no environmental implications associated with this report.

 

RURAL IMPLICATIONS

 

There are no specific rural implications associated with this report.

 

CONSULTATION

 

No specific public consultations were undertaken in the production of this report. Consultation with Human Resources and Organizational Development and Performance was undertaken.

 

LEGAL/RISK MANAGEMENT IMPLICATIONS

 

There are no legal / risk management implications associated with this report.

 

CITY STRATEGIC PLAN

 

The report supports the following City Strategic Plan priorities related to service delivery and a sustainable health and active city:

1.      Continue to improve the service culture at the City specifically so that it recognizes and balances the needs of all citizens in their encounters with City services, programs and staff, in both English and French pursuant to current policy.

2.      Ensure that cultural and recreational programs are offered across a range of levels of activity such that every resident, and in particular every child, has a change to participate.

 

FINANCIAL IMPLICATIONS

 

There are no financial implications associated with this report.

 

DISPOSITION

 

This report will be made available to citizens electronically in PDF and HTML formats on our Website (Ottawa.ca), and in printed format upon request.



Rapport sur les services en français

REPORT ON FRENCH LANGUAGE SERVICES

ACS2010-CMR-OCM-0002                     CITY WIDE/À L'ÉCHELLE DE LA VILLE

 

Vice-Chair Desroches, sitting in for the Chair, advised that a technical motion would be coming forward to correct a component of the report.

 

Kent Kirkpatrick, City Manager, was present to answer questions on the report.

 

Noting that a revised Table 1 - Designated and Budgeted Positions had been circulated to all members, Councillor McRae asked staff to explain the reason for the revision.  Mr. Kirkpatrick responded that the changes in the revised table simply present a more accurate representation, as the report actually excludes Library positions but the original table included those positions.  Furthermore, there were some non-budgeted positions that were originally in the December 2009 row and those have been removed.

 

The Councillor referred to page 183 of the report and asked Mr. Kirkpatrick to comment on some of the promotional items and a follow-up after the issue that took place with regards to the printing of the calendars, in particular.  She noted that incident created a lot of work for Councillors’ offices in terms of responding to queries.  She added that given the importance of the department and the historical connotations, she was disappointed that there was no mention of that incident in the report and what steps he would be putting in place, as the City Manager, to ensure something like that does not happen again.  She felt that incident was an embarrassment to the City and that it distracts people from the real intention of the policy.

 

Mr. Kirkpatrick assured that staff took the incident very seriously and agreed it was an unfortunate outcome that did not reflect well on the City or on Council.  He also agreed that it distracts from a lot of very good work that is being done to achieve the goals that Council has set with the French Language Services Policy.  He assured staff will take great care to ensure such an incident does not happen again.

 

The Councillor commented that it is unusual for Members of Council to become involved in a situation at this operational level.  She found it very disconcerting that the City Manager’s Office had not been aware of these promotional materials and she hoped he had put in place procedures to ensure he is informed and that nothing similar happens in future.  She added that the incident caused an overly extended period of negativity and frustration.

 

Moved by Councillor McRae:

 

That the Corporate Services and Economic Development Committee receive the report with the revised table and forward same to Council for its information.

 

                                                                        CARRIED as amended