52 Official Bilingualism: From Ambivalence to Embrace Graham Fraser

The son of legendary newsman and author Blair Fras- and pointed out dramatic contrasts in view between francophones and er, Graham Fraser forged his own career in journalism anglophones on whether the fed- during the national unity and constitutional wars of the eral government should promote 1970s, 80s and 90s. An anglophone by background, Fra- bilingualism, whether too much was being done for bilingualism and ser’s fluency in French and understanding of the political whether more should be done. nuances around the language issue won the wide respect of francophone media colleagues and made him an out- Before my mandate standing choice for Canada’s Commissioner of Official came to an end this Languages. After a decade in that role, Fraser is stepping fall, I wanted to know the aside, leaving his successor with this invaluable status current state of public opinion so that my report on how Canadians feel about what is arguably our successor could start with a most distinguishing national characteristic. clear understanding of the state of play on language issues. So earlier this year, ttitudes towards Canada’s recognition of both French and Eng- my office commissioned official languages have come lish in all provinces, while a slight Nielsen to conduct a A a long way since the Official majority (50.2 per cent) felt that it Languages Act was introduced in would be possible. national survey. 1968 and passed in 1969. In 1977, a year after the election When the OLA was debated in the of the Parti Québécois, only 26 per cent of Canadians outside Quebec House of Commons, opponents de- Before my mandate came to an end said that they agreed with the state- nounced the legislation as dictato- this fall, I wanted to know the cur- ment, “I generally agree with or sup- rial, unfair, discriminatory and un- rent state of public opinion so that port the principle or spirit of bilin- constitutional. One columnist called my successor could start with a clear gualism,” while 54 per cent said “I it “unnecessary, politically motivat- understanding of the state of play on generally support the principle of ed, costly to implement, and, as it language issues. So earlier this year, bilingualism but I disagree with the affects the non-English, non-French my office commissioned Nielsen to form bilingualism has taken under third of the population, wholly dis- conduct a national survey. criminatory.” Around that time, the the present federal government,” singing of O Canada in French was and 11 per cent said “I reject bilin- The survey had two objectives: to booed in Maple Leaf Gardens. gualism in any form.” In Quebec, gauge current public opinions, per- those figures were very different: 54 ceptions and experiences regarding Polling over the years has reflected per cent agreed with bilingualism, official languages and bilingualism, some of these tensions. In 1963, a 34 per cent qualified it and disagreed and to gather a detailed socio-cultur- majority (61 per cent) of Canadians with the form of it, and 4 per cent al profile—the habits, attitudes and told Gallup that they did not agree rejected it. values—of those who support and that French Canadians had not been those who oppose official languages given their full rights under Confed- In 2004, Andrew Parkin and André and bilingualism. eration. In 1967, a strong minority Turcotte said that “the same division (46.6 per cent) felt that it would not of opinion is evident on a variety of In the words of the report: “A vast be possible for Canada to achieve questions asked in the past 25 years,” majority of Canadians support both

Policy 53 posure that people have to the other official language in their commu- nity, through their culture and on their television channels.

The study also found that myths about Canada’s language policies persist, and that a majority of both supporters and opponents believe many of those myths.

For example, 87 per cent of Canadi- ans believe that all federal services must be provided in both languag- es from coast to coast. In fact, this requirements exists only where the official language minority popula- tion is 5 per cent or more of the total population in that area.

In yet another example, 49 per cent of Canadians believe that you have to be bilingual to work in the federal public service. In fact, only 40 per cent of public service positions across Canada require bilingualism. In the National Capital Region, Graham Fraser has seen official languages move from grudging to widespread acceptance in all regions of the country. Office of the Commissioner of Official Languages photo where most federal institutions have their headquarters, that number the Official Languages Act and bi- sked whether the fact of hav- rises to 60 per cent. lingualism. Although there are some ing two official languages demographic differences in support, A contributes favourably to every demographic group is more Canada’s international image, 87 per likely to support the OLA, as is the cent of Canadians said “yes” by tele- As another example, 71 per cent case with bilingualism. Younger phone, and 76 per cent said “yes” adults are more likely to strongly on-line. Asked whether they were of Canadians believe that there are support each.” personally in favour of bilingualism fewer French speakers than speak- for all of Canada, 84 per cent of Ca- ers of non-official languages. In fact, The telephone survey found that 88 nadians said “yes” by telephone and French is the mother tongue of 22 per cent of Canadians support the 74 per cent said “yes” on-line. Asked per cent of Canadians, while 20 per aims of the OLA, ranging from a low whether they agreed that since cent speak a non-official language as of 83 per cent in the Prairies to a high French and English were part of our their mother tongue. And 21 per cent of 92 per cent in Quebec. An on-line history, it was logical that they have of Canadians speak French at home, survey of a non-random sample of re- equal status, 84 per cent of Canadi- compared to 13 per cent who speak a spondents—Nielsen finds that people ans said “yes” by telephone and 73 non-official language at home. are more likely to be candid on-line— per cent said “yes” on-line. found that support dropped by about In yet another example, 49 per cent 10 points, which still indicates very One of the factors that distinguishes of Canadians believe that you have strong support. supporters from opponents is the ex- to be bilingual to work in the fed-

November/December 2016 54 eral public service. In fact, only 40 that immigration is not a threat to For the past 10 years, I have argued per cent of public service positions Canadian values and feel that reli- that Canada’s gradual acceptance of across Canada require bilingual- gious values should be accommo- linguistic duality—or the fact that we ism. In the National Capital Region, dated, who do not have conservative have an entire French-speaking soci- where most federal institutions have values and who feel that the push for ety within our borders—has made their headquarters, that number ris- equal rights has not gone far enough. us more open, more inclusive, and es to 60 per cent. more prepared to accept the arrival of others on our shores and welcome Nielsen found that those who op- Comparing this them into our society. This puts us pose the OLA are more likely to be survey with others in a significantly different place than cynical about government in general conducted over the past 40 the United States, the United King- and more likely to feel disconnect- years shows that support for ed from government. Members of dom and some parts of Europe. the on-line panel were divided into bilingualism is generally The poll supports that argument, three groups. inversely proportional to the intensity of the national despite indications of a slice of the One group that represented just over population that is strongly negative a quarter (27 per cent) of respon- unity debate. about both official languages and dents included those with “heart- minorities of all kind that should land values,” who showed the low- prevent any sense of smugness or su- est level of support for the act, who periority. Nevertheless, for my suc- are more ideologically opposed to omparing this survey with cessor and for political parties, the bilingualism, who are mostly male others conducted over the poll demonstrates that Canadians and middle-aged, who see immigra- C past 40 years shows that sup- believe that bilingualism is a pre- tion as a threat to Canadian values, port for bilingualism is generally in- requisite for political leadership and who feel that religious minorities versely proportional to the intensity a reasonable requirement for those should not be accommodated, who of the national unity debate. When who wish to be appointed to the have conservative values and who the debate flared up in 1990 and Supreme Court. Eighty-six per cent feel strongly that the push for equal 1991, support dropped. At the time, of Nielsen respondents thought the rights has gone too far. less than half of Canadians answered prime minister should be bilingual. positively to the question of whether Of the various hard decisions that nother group that represent- they were in favour of bilingualism parties and governments have to for all of Canada. Since then, sup- ed just under a third (32 per make, requiring political leaders and port has climbed steadily and is now A cent) of respondents included judges on the Supreme Court to be nearing 70 per cent. those who support “traditional Cana- bilingual is clearly not one of them. dian institutions,” who have a high Canadians understand what some level of support for the act and most Canada’s gradual potential political leaders and am- aspects of bilingualism, who inter- bitious lawyers have failed to grasp: act more with the other language, acceptance of there are some jobs in Canada for who see Quebec as distinct, who are linguistic duality—or the fact which bilingualism is an essential mostly female, who see immigration that we have an entire leadership competency. as a threat to Canadian values but French-speaking society feel that religious minorities should Graham Fraser was Commissioner of be accommodated, who have conser- within our borders—has Official Languages from 2006-2016. vative values and who feel that the made us more open, more A former journalist, he is the author push for equal rights has gone too far. inclusive, and more prepared of several books, including Playing to accept the arrival of others The last group, representing 41 per for Keeps: The Making of the Prime cent of respondents, are those who on our shores and welcome Minister, 1988 (1989), and Sorry, I are “progressive and open,” who them into our society. This Don’t Speak French, (2006). have the highest support for the puts us in a significantly OLA and most aspects of bilingual- different place than the ism, who focus more on equality, who see Quebec as distinct, who are United States, the United less likely to have misunderstand- Kingdom and some parts ings about the act, who are mostly of Europe. female, who are more likely to live in bilingual communities, who think

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