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Summary

The Office of the Commissioner of Official Languages for New Brunswick supports the following recommendations regarding the reform of the Official Languages Act (OLA) of Canada:

Putting recognition of linguistic dynamics into action

▪ We applaud the federal government’s intention to recognize the unique character of New Brunswick. We urge the government to not only recognize our province’s unique linguistic status, but also the unique constitutional status afforded to New Brunswick.

▪ We recommend that to align the two language regimes, federal institutions in New Brunswick should have the same language obligations as provincial government institutions.

Moving the dial towards equality

▪ We recommend that the federal government develops, with its provincial and territorial partners, strategies for enhancing accessible second language learning opportunities for adult learners.

▪ We welcome the federal government’s recognition of the importance of an immigration policy reiterating our recommendation that any such policy should take into account New Brunswick’s specific linguistic balance and recognition of the equality of status and equal rights and privileges of the province’s English and French linguistic communities.

Strengthening compliance of federal institutions and bilingualism in the public service

▪ We support the proposal for increased centralization of the coordination of compliance with the OLA of Canada as we have been proposing a more centralized approach to implementation and monitoring of our Act to the Government of New Brunswick for many years in the form of a Secretariat for Official Languages.

▪ We support the federal government’s proposals to improve support for second language training for public servants and any other measures that may enhance the vitality of both official languages in the workplace.

▪ We urge the federal government that any review of official languages qualification standards for second language evaluations and minimum second language requirements in the case of bilingual supervisory positions must enhance and not undermine the equitable participation of Anglophones and Francophones in the federal public service.

▪ We are pleased to support the Government of Canada’s engagement to its constitutional obligations by committing to undertake a review of the OLA of Canada, its governance structure, and regulations at least every 10 years.

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Introduction

On February 19, 2021, the Honourable Mélanie Joly, Minister of Official Languages, released her government’s white paper on proposed reforms to the OLA of Canada entitled English and French: Towards a substantive equality of official languages in Canada. As our office exists to protect and promote official language rights for the only officially bilingual province in Canada, we take great interest in the modernization of the OLA of Canada and any potential ripple effect on the OLA of New Brunswick. We believe that it is through frequent use of enabling legislation that we become comfortable with it and cognizant of its strengths and weaknesses. It is through application that we fully grasp how legislation may be adapted to better reflect its mandate. We preface our brief with these comments because while our office is passionate about our country’s official languages regime, our area of expertise lies with the OLA of New Brunswick. In the fall of 2018, Michel Carrier, Q.C., then Commissioner of Official Languages for New Brunswick, filed before the Parliament and the Senate of Canada an extensive brief which contained detailed submissions and recommendations pertaining to the OLA of Canada. In addition, he appeared before both the Standing Senate Committee on Official Languages and the parliamentary Standing Committee on Official Languages to present his recommendations. With this new submission, it is not our intention to repeat the contents of that brief. To that effect, we are enclosing it once again (Appendix A), as it does reflect the position of the Office of the Commissioner of Official Languages for New Brunswick. However, considering the proposals contained in English and French: Towards a substantive equality of official languages in Canada, we respectfully submit the observations and recommendations that follow.

Historical Context Our previous brief provided an extensive historical overview of official languages legislation in New Brunswick and more particularly outlined the history which led to the enshrining of specific linguistic rights in the Canadian Charter of Rights and Freedoms in 1982. These rights, as specified in sections 16, 17, 18, 19 and 20 of the Charter only relate to the Province of New Brunswick and no other province or territory of Canada. With the adoption of the Constitution Act, 1982 and the Charter, the linguistic rights of New Brunswickers became part of the Canadian constitution. When New Brunswick adopted a new Official Languages Act in 2002, the preamble to that Act made specific reference to the constitutional recognition of these linguistic rights:

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WHEREAS the Constitution of Canada provides that ATTENDU QUE la Constitution canadienne dispose English and French are the official languages of New que le français et l’anglais sont les langues officielles Brunswick and have equality of status and equal du Nouveau-Brunswick et qu’ils ont un statut et des rights and privileges as to their use in all institutions droits et privilèges égaux quant à leur usage dans of the Legislature and Government of New toutes les institutions de la Législature et du Brunswick; gouvernement du Nouveau-Brunswick; AND WHEREAS the Constitution of Canada confers Qu’elle confère au public, au Nouveau-Brunswick, le upon the public, in New Brunswick, the right to use droit à l’usage du français et de l’anglais à la English or French, in the Legislature and in the Législature et devant les tribunaux au Nouveau- courts of New Brunswick as well as to have access Brunswick ainsi que l’accès aux lois de la province to the laws of New Brunswick in both official dans les langues officielles; languages; AND WHEREAS the Constitution of Canada also Qu’elle prévoit, en outre, que le public a droit à provided for the right of any member of the public l’emploi de l’une ou l’autre des langues officielles to communicate with and to receive available pour communiquer avec tout bureau des services from any office of an institution of the institutions de la Législature ou du gouvernement Legislature or Government of New Brunswick in du Nouveau-Brunswick ou pour en recevoir les either official language; services; AND WHEREAS the Constitution of Canada also Qu’elle reconnaît également que la communauté recognizes that the English linguistic community linguistique française et que la communauté and the French linguistic community in New linguistique anglaise du Nouveau-Brunswick ont un Brunswick have equality of status and equal rights statut et des droits et privilèges égaux dont and privileges, including the right to distinct notamment le droit à des institutions educational institutions and such distinct cultural d’enseignement distinctes et aux institutions institutions as are necessary for the preservation culturelles distinctes nécessaires à leur protection and promotion of those communities; et à leur promotion; AND WHEREAS the Constitution of Canada affirms, Qu’elle confirme, en matière de langues officielles, with respect to both official languages, the le pouvoir de la Législature et du gouvernement du authority of the Legislature and the Government of Nouveau-Brunswick de favoriser la progression ver New Brunswick to advance the status, rights and l’égalité du statut, des droits et des privilèges qui y privileges therein; sont énoncés; AND WHEREAS New Brunswick is committed to Il convient donc que le Nouveau-Brunswick adopte enacting an Official Languages Act that respects the une Loi sur les langues officielles qui respecte les rights conferred by the Canadian Charter of Rights droits conférés par la Charte canadienne des droits and Freedoms and allows the Legislature and the et libertés et qui permet à la Législature et au Government to fulfill their obligations under the gouvernement de réaliser leurs obligations au sens Charter; de la Charte;

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New Brunswick Recommendations The Office of the Commissioner of Official Languages for New Brunswick has previously made the following broad recommendations relating to the modernization of the OLA of Canada:

1. Parliament is urged to acknowledge the unique character of New Brunswick in a modernized federal Official Languages Act and to align the federal and New Brunswick regimes wherever possible.

2. The OLA of Canada should require the federal government to offer its services and communicate in both official languages throughout New Brunswick.

3. The OLA of Canada should require the federal government to consider and support the equality of status and the equal rights and privileges of the English and French linguistic communities in New Brunswick, including the distinct institutions to which they are entitled.

The Government of Canada’s document, English and French: Towards a substantive equality of official languages in Canada, clearly envisages the recognition of linguistic realities throughout Canada and does take note that New Brunswick is the only province to have declared itself to be officially bilingual. The federal government does state its intention to include specific legislative proposals that:

“Recognize linguistic dynamics in the provinces and territories, that is, that French is the official language of Quebec; that New Brunswick is the only province where the equality of status of both official languages—as well as the related rights and privileges—is recognized in the Constitution as concerns their use in government institutions; […]”

The Office of the Commissioner of Official Languages for New Brunswick applauds what appears to be evidence of the federal government’s intention to recognize the unique character of New Brunswick. There is clear recognition in the document of our unique linguistic status. However, there is no specific recognition of the unique constitutional status afforded to New Brunswick.

Putting recognition of linguistic dynamics into action Further examination of the document enables us to gauge whether there are specific proposed amendments to the OLA of Canada that will demonstrate that the federal government intends to take steps to reflect our recommendation that Parliament align the federal and New Brunswick language regimes. As was pointed out in our 2018 submission, section 20 of the Charter establishes the right of members of the public to use the official language of their choice with institutions of the Parliament or Government of Canada and with institutions of the Legislature or Government of New Brunswick. However, those two sets of “rights” are treated slightly differently in section 20(1) of the Charter which references public communications with and services from federal institutions and section 20(2) which references public communications and services from institutions of the Legislature or Government of New Brunswick.

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At the federal level, the public right to those communications and services depends on there first being a “significant demand” or “due to the nature of the office, it is reasonable that communications with and services from that office” be available in both official languages. This wording is also reflected in section 22 of the OLA of Canada, a section entitled “Where communication and services must be in both official languages”:

22 Every federal institution has the duty to ensure that any member of the public can communicate with and obtain available services from its head or central office in either official language, and has the same duty with respect to any of its other offices or facilities

(a) within the National Capital Region; or (b) in Canada or elsewhere, where there is significant demand for communications with and services from that office or facility in that language.” (Emphasis added)

As we noted in our 2018 submission, in New Brunswick this right is unconditional and not contingent on anything. Therefore, we recommend that to align the two language regimes, federal institutions in New Brunswick should have the same language obligations as provincial government institutions. What better manner to establish its commitment to linguistic equality of both official languages than for the federal government to ensure it provides the same level of communications and services as its provincial counterpart in New Brunswick? The federal government should take the lead in this area. It is our opinion that this recommendation falls in line with the Government of Canada’s guiding principle 3.3 in the white paper on official language reform, which states:

“New regulations under Part VII of the Act would be one way to have federal institutions take positive measures and thus improve the realization of the Government’s commitment to official language minority communities and the promotion of English and French.”

Indeed, the federal government also confirms a legislative proposal to provide for federal institutions to meet their obligations:

Legislative proposal

• Establish the power to enact policy instruments in support of regulations specifying the terms and conditions for the implementation of positive measures that federal institutions are obligated to take pursuant to Part VII of the Act.

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This proposal may bolster efforts that are currently in place to provide services. However, it is unclear from this proposal whether this will lead to enhanced access to government services and communications. Therefore, it is not clear to the Office of the Commissioner of Official Languages for New Brunswick that there is any intention on the part of the federal government to enhance federal government services in both official languages in New Brunswick.

Moving the dial towards equality While the OLA of New Brunswick does not have any legal authority over New Brunswick’s Education Act, the Office of the Commissioner of Official Languages for New Brunswick does have a mandate to promote the advancement of both official languages in the province. Anecdotally, since the creation of our office in 2003, we have heard from adult New Brunswickers from all walks of life who seek to advance their skills in their second official language but come across various barriers such as financing, course availability, and time constraints. It is with those New Brunswickers in mind that our office applauds the Government of Canada’s desire to recognize its commitment to encouraging access to official language learning. We recommend that the federal government develops, with its provincial and territorial partners, strategies for enhancing accessible second language learning opportunities for adult learners. In guiding principle 4.1 of English and French: Towards a substantive equality of official languages in Canada, there is recognition of a trend in Canada which demonstrates the decrease of the demographic weight of Francophones and that the use of French has deteriorated in Canada. This trend is reflected in New Brunswick as concluded in a report released by the Office of the Commissioner of Official Languages for New Brunswick in February 2021: The Language Situation in New Brunswick: Worrying Trends and Some Encouraging Signs. The latest available census data analysed in this report (2016) indicates that bilingualism in Canada’s only officially bilingual province has been stagnating for over a decade and that our province had the weakest growth in the number of bilingual persons in Canada over the last two census periods. The white paper refers to measures to promote French in guiding principle 4.2:

“It is proposed to implement government policies that seek to promote substantive equality and the equality of status of French by valuing the cultures and heritage of Francophone communities in order to strengthen the status of French.”

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In terms of specific promotional measures, the federal government speaks to some possible legislative amendments relating to the following: • efforts via CBC/Radio-Canada; • the development and promotion of Francophone culture through all agencies reporting to Canadian Heritage under initiatives related to support for culture; • supporting bilingualism in areas of Canadian diplomacy such as the International Francophonie; and • the recognition of the importance of Francophone immigration to the vitality of French and Francophone minority communities and an obligation to adopt a Francophone immigration policy. The Office of the Commissioner of Official Languages for New Brunswick welcomes the federal government’s recognition of the importance of an immigration policy reiterating our recommendation that any such policy should take into account New Brunswick’s specific linguistic balance and recognition of the equality of status and equal rights and privileges of the province’s English and French linguistic communities.

Strengthening compliance of federal institutions and bilingualism in the public service The Office of the Commissioner of Official Languages for New Brunswick has examined with interest the Government of Canada’s proposed measures to enhance compliance with the OLA of Canada. We note with interest the intention to assign the role of coordination of compliance to a single minister and that the Treasury Board of Canada Secretariat’s powers will be strengthened to monitor compliance with Part VII of the Act. Our office supports any proposal for increased centralization of these functions as we have been proposing a more centralized approach to implementation and monitoring of our Act to the Government of New Brunswick for many years in the form of a Secretariat for Official Languages. In terms of bilingualism in the public service, this too is an area we have examined in relation to our Official Languages Act. We are recommending to the Government of New Brunswick that the right for New Brunswick provincial public servants to work and be supervised in the official language of their choice be formally included in the OLA of New Brunswick. We are aware that the OLA of Canada currently has this provision and there are nonetheless significant problems with linguistic security in the federal workplace as demonstrated by reporting done by the Commissioner of Official Languages of Canada. We will look with interest to the implementation of the federal government’s proposals to improve support for second language training for public servants and any other measures that may enhance the vitality of both official languages in the workplace. The white paper also refers to revising official languages qualification standards for second language evaluations and minimum second language requirements in the case of bilingual supervisory positions. Our office urges the federal government that any such review must enhance and not undermine the equitable participation of Anglophones and Francophones in the federal public service. And finally, we are pleased to support the Government of Canada’s engagement to its constitutional obligations by committing to undertake a review of the OLA of Canada, its governance structure, and regulations at least every 10 years. This has been the case in New Brunswick since the overhaul of our Act in 2002 and we think that these types of provisions are important for a subject matter as vital and ever- evolving as official languages.

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Conclusion The Office of the Commissioner of Official Languages for New Brunswick hopes that a modernized Official Languages Act of Canada will provide a recognition of New Brunswick’s constitutional uniqueness and will reflect the equality of status and equal rights and privileges of the English and French linguistic communities in New Brunswick as enshrined by the Canadian Charter of Rights and Freedoms and the Legislative Assembly of New Brunswick by way of An Act Recognizing the Equality of the Two Official Linguistic Communities in New Brunswick. We welcome the federal government’s document, English and French: Towards a substantive equality of official languages in Canada. Indeed, the title reflects the mandate and aspiration of our office and the Official Languages Act of New Brunswick. Whatever legislative amendments are proposed, steps taken, programs developed, or funding provided, we reiterate that they must all be planned through the lens of promoting the equality of English and French in Canadian society. Let us continue moving towards substantive equality.

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Brief Submitted by the Office of the Commissioner of Official Languages for New Brunswick to the Standing Senate Committee on Official Languages As Part of Its Study on Canadians’ Views about Modernizing the Official Languages Act

FINAL VERSION

October 26, 2018

INTRODUCTION ...... 1 PART I – Historical context and the OLA’s shortcomings regarding New Brunswick...... 3 PART II – The Office of the Commissioner urges Parliament to acknowledge the unique character of New Brunswick in a modernized federal OLA and to align the federal and New Brunswick language regimes wherever possible ...... 18 A. The Office of the Commissioner recommends that the federal OLA require the federal government to offer its services and communicate in both official languages throughout New Brunswick ...... 18 B. The Office of the Commissioner recommends that the federal OLA require the government to consider and support the equality of status and the equal rights and privileges of the English and French linguistic communities in New Brunswick, including the distinct institutions to which they are entitled ...... 22 PART III – Parliament should draw on New Brunswick’s experience with official languages in modernizing the federal OLA ...... 24 a) Learn from the NB OLA implementation model ...... 24 b) Draw from specific obligations under the NB OLA ...... 28 c) Learn from the shortcomings of the New Brunswick regime: clarify the role of the Translation Bureau ...... 32

INTRODUCTION 1. The Commissioner of Official Languages for New Brunswick is an independent officer of the Legislative Assembly of New Brunswick. His role is to investigate, report on and make recommendations with regard to compliance with the NB OLA. The Commissioner also promotes the advancement of both official languages in the province. It is under this promotion mandate that the Commissioner wishes to propose changes as part of the efforts to modernize the federal OLA. 2. The Office of the Commissioner of Official Languages for New Brunswick (Office of the Commissioner) is well placed to explain New Brunswick’s “unique character” and to share best practices from New Brunswick’s official languages experience 3. The Office of the Commissioner believes the federal Official Languages Act1 (OLA, Appendix “A”) should be thoroughly modernized to reflect the sociolinguistic, demographic, technological and legal changes that have occurred since its overhaul in 1988. Since that time, New Brunswick’s Official Languages Act2 (NB OLA) has been modernized twice: in 2002 and 2013. 4. The federal OLA should also be modernized, particularly for two reasons specific to New Brunswick. 5. First, modernizing the federal OLA should correct Parliament’s historical lack of consideration for the “unique character of New Brunswick”3 and its constitutional uniqueness. It is unfortunate that the federal OLA has never reflected New Brunswick’s unique status with regard to official languages enshrined in the Constitution in 1982 by subsections 16(2), 17(2), 18(2), 19(2) and 20(2) of the Canadian Charter of Rights and Freedoms4 (“the Charter”) since it was overhauled in 1988. 6. Second, the federal OLA should be modernized to reflect the equality of status and equal rights and privileges of the English linguistic community and the French linguistic community in New Brunswick enshrined by Parliament and the Legislative Assembly of New Brunswick in the 1993 Constitutional Amendment (New Brunswick), which amended the Charter by adding section 16.1. 7. Part I of this brief describes New Brunswick’s legal uniqueness in terms of language rights and the shortcomings of the federal system created by the OLA in 1988 with regard to the province. The gap between the legislative objective pursued by Parliament in 1988 to modernize the federal OLA in light of the Charter and what was actually accomplished with respect to New Brunswick is illustrated by parliamentary debate raising (or failing to raise) New Brunswick’s uniqueness. Furthermore, debate leading to the 1993 Constitutional Amendment (New

1 Official Languages Act, R.S.C. 1985, c. 31 (4th Supp.) [Official Languages Act]. 2 Official Languages Act, SNB 2002, c. O-0.5 [NB OLA]. 3 An Act Recognizing the Equality of the Two Official Linguistic Communities in New Brunswick, SNB 2011, c. 198 [Act Recognizing the Equality of the Two Official Linguistic Communities]. 4 Canadian Charter of Rights and Freedoms, Part I of the Constitution Act, 1982, being Schedule B to the Canada Act 1982 (UK), 1982, c. 11 [Charter].

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Brunswick) shows that with respect to New Brunswick, the federal OLA already needed to be modernized shortly after it was enacted in 1988. 8. Part II calls on Parliament to address these gaps by recognizing New Brunswick’s uniqueness in a modernized federal OLA and, wherever possible, aligning the federal and New Brunswick language regimes. 9. Part III encourages Parliament to draw from the wealth of New Brunswick’s 50 years of experience with official languages, particularly the most recent version of the NB OLA.

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PART I – Historical context5 and the OLA’s shortcomings regarding New Brunswick 10. On April 18, 1969, New Brunswick adopted Canada’s first Official Languages Act (the federal OLA was enacted a few months later), although many provisions did not come into force until 1977. The NB OLA of 1969 (Appendix “B”) laid the foundation for institutional bilingualism in New Brunswick.6 11. The NB OLA of 1969 made English and French “the official languages of New Brunswick for all purposes to which the authority of the Legislature of New Brunswick extends” and stated that these languages “possess and enjoy equality of status and equal rights and privileges.”7 It set out a first regime of parliamentary,8 legislative9 and judicial10 bilingualism. 12. The first NB OLA also imposed linguistic obligations regarding communications with and services to the public, including the obligation to ensure that the public was able to obtain, on request, available services and to communicate regarding those services in either official language.11 It should be noted, however, that the NB OLA of 1969 authorized the provincial government to attach conditions to the exercise of this right, particularly with respect to the demand threshold, which would later be done away with: 16. Lorsque 16. Where (a) Le nombre des personnes en cause le (a) warranted by reason of numbers of justifie ; persons involved; (b) l’esprit de la présente loi l’exige ; ou (b) the spirit of this Act so requires; or (c) si l’on juge qu’il est nécessaire de le faire (c) it is deemed necessary to so provide for pour assurer la bonne application de la the orderly implementation of this Act; présente loi ; Le lieutenant-gouverneur en conseil peut The Lieutenant-Governor in Council may make édicter des règlements précisant l’application regulations determining the application of …. […].

5 For the purposes of this brief, thousands of pages of parliamentary sources have been reviewed, including the minutes and evidence of the following committees: the Legislative Committee on Bill C-72; the Special Senate Committee on Bill C-72; the Special Joint Committee of the Senate and the House of Commons on the Constitution of Canada (1980-1981); the Special Joint Committee of the Senate and the House of Commons on the 1987 Constitutional Accord (Meech Lake Accord); the House of Commons Special Committee on the Proposed Companion Resolution to the Meech Lake Accord (1989-1990); the Special Joint Committee on a Renewed Canada (1991-1992); the Senate Debates of the 33rd Parliament, 2nd Session (1986-1988); and the House of Commons Debates of the 33rd Parliament, 2nd Session (1986- 1988). 6 Michel Doucet, Les droits linguistiques au Nouveau-Brunswick, À la recherche de l’égalité réelle!, Lévis: Les éditions de la francophonie, 2017, p. 80. 7 Official Languages Act, NB OLA 1969, s. 3 [NB OLA 1969]. 8 NB OLA 1969, supra, ss. 4-5, 15. 9 NB OLA 1969, supra, ss. 6-8, 15. 10 NB OLA 1969, supra, s. 14. 11 NB OLA 1969, supra, ss. 9-11.

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13. The NB OLA of 1969 also authorized municipal councils to declare that either official language or both could be used in council proceedings and provided certain education rights.12 14. On July 17, 1981, the Legislative Assembly of New Brunswick adopted the precedent-setting Act Recognizing the Equality of the Two Official Linguistic Communities in New Brunswick (Appendix “C”). This act acknowledged the unique character of New Brunswick, as well as the equality of status and the equal rights and privileges of its English linguistic community and French linguistic community. It went so far as to acknowledge that these communities had a right to “distinct institutions” within which “cultural, educational and social activities” could be carried out. This brief act reads as follows:

1. Reconnaissant le caractère unique du 1. Acknowledging the unique character of New Nouveau-Brunswick, la communauté Brunswick, the English linguistic community linguistique française et la communauté and the French linguistic community are linguistique anglaise sont officiellement officially recognized within the context of one reconnues dans le contexte d’une seule province for all purposes to which the authority province à toutes fins auxquelles s’étend of the Legislature of New Brunswick extends, l’autorité de la Législature du Nouveau- and the equality of status and the equal rights Brunswick ; l’égalité de statut et l’égalité des and privileges of these two communities are droits et privilèges de ces deux communautés affirmed. sont affirmées.

2. Le gouvernement du Nouveau-Brunswick 2. The Government of New Brunswick shall assure la protection de l’égalité de statut et de ensure protection of the equality of status and l’égalité des droits et privilèges des the equal rights and privileges of the official communautés linguistiques officielles et en linguistic communities and in particular their particulier de leurs droits à des institutions right to distinct institutions within which cultural, distinctes où peuvent se dérouler des activités educational and social activities may be carried culturelles, éducationnelles et sociales. on. 3. Le gouvernement du Nouveau-Brunswick, 3. The Government of New Brunswick shall, in dans les mesures législatives qu’il propose, its proposed laws, in the allocation of public dans la répartition des ressources publiques et resources and in its policies and programs, dans ses politiques et programmes, take positive actions to promote the cultural, encourage, par des mesures positives, le economic, educational and social development développement culturel, économique, of the official linguistic communities. éducationnel et social des communautés linguistiques officielles13.

15. One year later, in 1982, Parliament adopted the Charter, the centrepiece of the “repatriation” of the Constitution. This now-iconic legislation carved out, for the first time, a very special place for New Brunswick in the constitutional order. Sections 16, 17, 18, 19 and 20 set out the following: Langues officielles du Canada Official languages of Canada 16(1) Le français et l’anglais sont les langues 16(1) English and French are the official officielles du Canada ; ils ont un statut et des languages of Canada and have equality of droits et privilèges égaux quant à leur usage status and equal rights and privileges as to

12 NB OLA 1969, supra, ss. 12-13. 13 An Act Recognizing the Equality of the Two Official Linguistic Communities in New Brunswick, supra.

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dans les institutions du Parlement et du their use in all institutions of the Parliament and gouvernement du Canada. government of Canada.

Langues officielles du Nouveau-Brunswick Official languages of New Brunswick 16(2) Le français et l’anglais sont les langues 16(2) English and French are the official officielles du Nouveau-Brunswick ; ils ont un languages of New Brunswick and have equality statut et des droits et privilèges égaux quant à of status and equal rights and privileges as to leur usage dans les institutions de la their use in all institutions of the legislature and Législature et du gouvernement du Nouveau- government of New Brunswick. […] Brunswick. […]

Travaux du Parlement Proceedings of Parliament 17(1) Chacun a le droit d’employer le français 17 (1) Everyone has the right to use English or ou l’anglais dans les débats et travaux du French in any debates and other proceedings Parlement. of Parliament.

Travaux du Parlement Proceedings of New Brunswick legislature 17(2) Chacun a le droit d’employer le français 17(2) Everyone has the right to use English or ou l’anglais dans les débats et travaux de la French in any debates and other proceedings Législature du Nouveau-Brunswick. of the legislature of New Brunswick.

Documents parlementaires Parliamentary statutes and records 18 (1) Les lois, les archives, les comptes 18(1) The statutes, records and journals of rendus et les procès-verbaux du Parlement Parliament shall be printed and published in sont imprimés et publiés en français et en English and French and both language anglais, les deux versions des lois ayant versions are equally authoritative. également force de loi et celles des autres documents ayant même valeur.

Documents de la Législature du Nouveau- New Brunswick statutes and records Brunswick 18(2) Les lois, les archives, les comptes 18(2) The statutes, records and journals of the rendus et les procès-verbaux de la Législature legislature of New Brunswick shall be printed du Nouveau-Brunswick sont imprimés et and published in English and French and both publiés en français et en anglais, les deux language versions are equally authoritative. versions des lois ayant également force de loi et celles des autres documents ayant même valeur.

Procédures devant les tribunaux établis par Proceedings in courts established by le Parlement Parliament 19(1) Chacun a le droit d’employer le français 19(1) Either English or French may be used by ou l’anglais dans toutes les affaires dont sont any person in, or in any pleading in or process saisis les tribunaux établis par le Parlement et issuing from, any court established by dans tous les actes de procédure qui en Parliament. découlent.

Procédures devant les tribunaux du Proceedings in New Brunswick courts Nouveau-Brunswick 19(2) Chacun a le droit d’employer le français 19(2) Either English or French may be used by ou l’anglais dans toutes les affaires dont sont any person in, or in any pleading in or process saisis les tribunaux du Nouveau-Brunswick et issuing from, any court of New Brunswick. dans tous les actes de procédure qui en découlent.

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Communications entre les administrés et Communications by public with federal les institutions fédérales institutions 20(1) Le public a, au Canada, droit à l’emploi 20(1) Any member of the public in Canada has du français ou de l’anglais pour communiquer the right to communicate with, and to receive avec le siège ou l’administration centrale des available services from, any head or central institutions du Parlement ou du gouvernement office of an institution of the Parliament or du Canada ou pour en recevoir les services ; il government of Canada in English or French, a le même droit à l’égard de tout autre bureau and has the same right with respect to any de ces institutions là où, selon le cas : other office of any such institution where

(a) there is a significant demand for a) l’emploi du français ou de l’anglais fait communications with and services from that l’objet d’une demande importante ; office in such language; or (b) due to the nature of the office, it is b) l’emploi du français et de l’anglais se reasonable that communications with and justifie par la vocation du bureau. services from that office be available in both English and French.

Communications by public with New Communications entre les administrés et Brunswick institutions les institutions du Nouveau-Brunswick 20(2) Any member of the public in New 20(2) Le public a, au Nouveau-Brunswick, droit Brunswick has the right to communicate with, à l’emploi du français ou de l’anglais pour and to receive available services from, any communiquer avec tout bureau des institutions office of an institution of the legislature or de la législature ou du gouvernement ou pour government of New Brunswick in English or en recevoir les services. French. 16. It was not by accident that the Charter recognized New Brunswick’s unique character. Parliament acted at the express request of New Brunswick Premier Richard Hatfield, who in 1980 said the following before the Special Joint Committee of the Senate and House of Commons on the Constitution of Canada: L’honorable Richard Hatfield (Premier Hon. Richard Hatfield (Premier of New ministre du Nouveau-Brunswick) : Brunswick): Mr. Chairman. Senators, [M]onsieur le président. Messieurs les honourable members. I first of all thank you for sénateurs, messieurs les députés, je désire granting me the opportunity to make d’abord vous remercier de m’avoir fourni cette representations on behalf of the government of occasion de vous présenter l’opinion du New Brunswick with regard to this important gouvernement du Nouveau-Brunswick sur matter of our nationhood [the amendment of cette question si importante pour notre nation the Constitution]. [la modification de la Constitution].

[…] J’ai également fait distribuer un certain […] I have also circulated a number of specific nombre de recommandations précises qui recommendations with regard to amendments correspondent aux modifications que le which the government of New Brunswick would gouvernement du Nouveau-Brunswick aimerait like incorporated in the resolution as it is voir apporter à cette résolution [qui deviendra passed in Parliament and as it is passed in the la Charte canadienne des droits et libertés] Parliament of Great Britain. […] quand elle sera adoptée par le Parlement puis par le Parlement de la Grande-Bretagne. […]

En effet, le gouvernement du Nouveau- [W]hat I believe has happened in the Province Brunswick et sa population ont finalement of New Brunswick whereby we have come to reconnu cette volonté des fondateurs du pays terms with this phenomena of our country, qu’il soit possible et même utile au mieux-être come to terms with this resolution, I think, of et à l’avancement des gens que deux langues the founders of this country but certainly the

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soient reconnues et utilisées, avec tous les resolution of the people of New Brunswick, avantages que cela comporte. Voilà ce dont which is that it is possible and it is to the nous avons pris conscience au Nouveau- betterment and the advancement of the people Brunswick et même si la situation n’est pas to acknowledge and to enjoy the benefits of idéale, nous continuons d’apporter des two languages and all that comes from that. améliorations. D’ailleurs, si vous donnez suite That has been our experience in New à notre vœu, la constitution nous obligera à Brunswick, we do not have the ideal and we apporter des améliorations14. are still making improvements and we will continue to make improvements, and if you grant our wish here today or in the resolution we will be forced by the constitution to make improvements. 17. New Brunswick’s support for linguistic equality was impeccable: L’honorable Richard Hatfield (Premier Hon. Richard Hatfield (Premier of New ministre du Nouveau-Brunswick) : […] Les Brunswick): The people who speak French in gens qui parlent français au Canada ne this country are not minorities. That is what the constituent pas vraiment une minorité, c’est ce Official Languages Act says and that is what I que stipule la Loi sur les langues officielles et want the constitution to say. They are not c’est également ce que dit la Constitution. Ils minorities, they are Canadians. They are ne constituent pas une minorité puisqu’ils sont Canadians who exercise a right to speak one Canadiens à part entière et ils ne font of the Canadian languages. […] qu’exercer leur droit de parler l’une des langues du Canada. […]

[L]’un des problèmes du public, lorsqu’il s’agit [O]ne of the problems that people have I think de reconnaître les deux langues, c’est que les with recognizing the two languages is they citoyens croient que les francophones seront think the French speaking Canadians will be déraisonnables. Je puis témoigner du fait qu’au unreasonable. I can testify to the fact that if contraire, ils sont peut-être trop patients, ils ne anything they suffer from too much patience, sont pas déraisonnables dans leurs demandes, they are not unreasonable in their demands, ils sont réalistes, corrects et juste ; ils exercent their demands are realistic, correct and proper, toujours une pression sur le gouvernement, ce and they did keep putting pressure on the à quoi nous avons réagi, mais je crois que government and the government did respond, cette pression est nécessaire15. but I think the pressure has to be there. 18. The federal government granted New Brunswick’s request, announced in 1981 by the Minister of Justice, Jean Chrétien, when he presented amendments to the draft Charter. Prior to Premier Hatfield’s appearance before the Committee in 1981, the Charter did not include specific provisions for New Brunswick: L’honorable Jean Chrétien (ministre de la Hon. Jean Chrétien (Minister of Justice): […] Justice) : [J]’aimerais présenter et exprimer les I would like to explain the amendments which modifications que nous sommes prêts à the government is prepared to accept to the accepter en ce qui concerne les dispositions language provisions of the Charter of Rights. sur les droits linguistiques à insérer dans la Charte des droits et libertés.

14 Parliament of Canada, Minutes of Proceedings and Evidence of the Special Joint Committee of the Senate and of the House of Commons on the Constitution of Canada, No. 19 (December 4, 1980), pp. 46, 49. 15 Parliament of Canada, Minutes of Proceedings and Evidence of the Special Joint Committee of the Senate and of the House of Commons on the Constitution of Canada, No. 19 (December 4, 1980), pp. 59, 78.

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D’abord, le premier ministre Hatfield, agissant First, Premier Hatfield had, in his appearance au nom du gouvernement du Nouveau- before this committee, requested on behalf of Brunswick, a demandé que la Charte affirme the government of New Brunswick that the que le français et l’anglais constituent les Charter confirm that English and French are langues officielles du Nouveau-Brunswick ; que the official languages of New Brunswick, that l’usage de ces deux langues soit garanti dans the use of both languages in the courts and les cours de justice, dans les textes de loi, legislatures and statutes of New Brunswick be comme à la législature ; et que les citoyens du guaranteed, and that the right of the people of Nouveau-Brunswick aient le droit de New Brunswick to communicate with and communiquer avec leur gouvernement et d’en receive services from their government in recevoir les services dans l’une ou l’autre des either official language be guaranteed. langues officielles.

Je suis très heureux de pouvoir présenter ces I am very pleased to be able to table propositions du premier ministre du Nouveau- amendments to Sections 16-20 giving effect to Brunswick visant à modifier les article 16 à 20 the proposals of the Premier of New en conséquence. Je les dépose devant le Brunswick. I want to take this opportunity to Comité dans ma déclaration supplémentaire. congratulate Premier Hatfield on his La vision que se fait monsieur Hatfield du statesmanlike approach to Canada. When Canada est celle d’un homme d’état et je l’en other provinces are prepared to emulate félicite. Son attitude devrait servir d’émulation Premier Hatfield, the amending formula as aux autres provinces et, le temps venu, la presently drafted will allow them upon procédure de modification, en sa version resolution of their legislature and of the actuelle, leur permettra, après résolution de Parliament of Canada to give constitutional leurs législatures et du Parlement canadien, de protection respecting the sue of the English progresser vers l’égalité de statut et d’usage du and French languages in their provinces. français et de l’anglais

Et monsieur Hatfield nous a assurés que ce Mr. Hatfield has assured us that the que nous plaçons devant le Comité aujourd’hui amendments being tabled before the comme modifications sera approuvé par committee today will be approved by the New l’assemblée législative du Nouveau-Brunswick Brunswick legislature as soon as it resumes its aussitôt que cette législature se réunira à sitting. nouveau16. 19. The coming into force of the Charter required an overhaul of the federal OLA: L’hon. Ray Hnatyshyn (ministre de la The Hon. Ray Hnatyshyn (Minister of Justice et procureur général du Canada) : Justice and Attorney General of Canada): La réforme de la politique des langues The reform of the official languages policy had officielles s’imposait. Le Parlement a le devoir to be undertaken. Parliament has a duty to d’harmoniser les dispositions de la Loi sur les bring the provisions of the Official Languages langues officielles de 1969 avec la Charte des Act of 1969 into line with the Charter of Rights droits et des libertés17. and Freedoms. 20. Parliament did not give New Brunswick special treatment in the new federal OLA, even though they readily recognized the heterogeneity of Canada’s linguistic landscape. Perhaps this was due to tensions at that time within the Canadian federation concerning the possibility of explicitly recognizing special constitutional status for Quebec. Bernard Valcourt, then an Acadian cabinet minister, said the following about the importance of amending the federal OLA:

16 Parliament of Canada, Minutes of Proceedings and Evidence of the Special Joint Committee of the Senate and of the House of Commons on the Constitution of Canada, No. 36 (January 12, 1981), p. 16. 17 Debates of the House of Commons, 33rd Parl., 2nd Sess., No. 10 (February 8, 1988), p. 12705.

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L’hon. Bernard Valcourt (ministre d’État Hon. Bernard Valcourt (Minister of State (Petites entreprises et Tourisme) et ministre (Small Business and Tourism) and Minister d’État (Affaires indiennes et du Nord of State (Indian Affairs and Northern canadien) : […] Je m’en voudrais, d’entrée de Development): […] I would be remiss if, from jeu, de ne pas souligner le caractère historique the outset, I failed to underscore the historic de la loi que nous nous proposons d’adopter. character of the legislation now under Ce projet de loi constitue, nous le savons, la consideration. We all know that this Bill is the première grande réforme de la Loi sur les first major reform of the Official Languages Act langues officielles depuis son adoption en since it was adopted in 1969, yet however valid 1969, et aussi valable et avant-gardiste qu’elle and avant-garde it may have been at the time ait pu être à cette époque, nul ne pouvait no one would question the urgent need for contester l’urgente nécessité de revoir et de reconsidering and redrafting the law to reflect reformuler cette loi pour l’adapter aux besoins Canada’s changing requirements and new changeants et aux circonstances nouvelles au circumstances. pays.

Il fallait notamment l’adapter aux nouvelles The legislation had to be adapted to the new réalités constitutionnelle et politiques de notre constitutional and political realities of this pays et faire en sorte qu’elle traduise mieux country so that it would be a more satisfactory l’évolution de la société canadienne en matière reflection of the linguistic changes that have linguistique. Il va sans dire, madame la taken place in Canadian society. Needless to Présidente, que le projet de loi C-72 [qui say, Madam Speaker, Bill C-72 goes well deviendra la Llo fédérale] va bien au-delà de beyond these two prerequisites, covering all ces deux exigences car il couvre tous les major aspects of the language question. aspects importants de la question linguistique. Today, however, I would prefer to highlight Je voudrais cependant aujourd’hui me limiter à some aspects of the Bill that are particularly certains éléments de ce projet de loi qui me important to me as an Acadian and a tiennent particulièrement à cœur à titre Francophone from a region outside Québec. I d’Acadien et de francophone originaire de am thinking more specifically of the l’extérieur du Québec. Lorsque je dis cela, je Government’s new responsibility for promoting pense plus précisément aux nouvelles and developing official language communities responsabilités que se donne le gouvernement and the special place this Bill has in the en matière de promotion et de développement process of promoting and implementing the des communautés de langues officielles et à la French fact in Canada. place privilégiée qu’occupe ce projet de loi dans l’affirmation et la concrétisation du fait français au Canada.

J’ai dit que l’élaboration de ce projet de loi I said that this Bill was drafted in order to répondait à une urgente nécessité. D’une part, provide urgently needed legislation. Actually, it il fallait mettre à jour la Loi sur les langues was necessary to update the Official officielles de 1969 pour rendre conforme aux Languages Act, 1969, to bring it into line with exigences constitutionnelles de la Charte the constitutional requirements of the Canadian canadienne des droits et libertés, et à ce Charter of Rights and Freedoms. In this chapitre, d’importantes mesures viseront les respect, there are some important provisions politiques en matière de langue de travail dans regarding the language of work in the federal la Fonction publique fédérale, en matière de Public Service, service to the public across this services au public partout au pays, en matière country, full participation by French-speaking de pleine participation des Canadiens and English-speaking Canadians in federal d’expression française et d’expression anglaise institutions, and the administration of justice. au sein des institutions fédérales et en matière Furthermore, as I said earlier, it was necessary d’administration de la justice. D’autre part, il to adapt our official languages legislation to the fallait, comme je l’ai mentionnée, adapter la linguistic changes in Canadian society. In fact, législation en matière de langue[s] officielle[s] à tremendous progress has been made in this l’évolution de la société canadienne en matière respect since 1969. Hence the need for a linguistique. Et d’aucuns constateront les better definition of the roles and responsibilities

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progrès énormes qui ont été réalisés à ce of the various departments responsible for chapitre depuis 1969. De là le besoin de mieux implementing the new policy, and also the préciser les rôles et les responsabilités des need for determining the parameters of federal- divers ministères chargés de la mise en œuvre provincial cooperation involving the de la nouvelle politique, de mieux cerner les enhancement of official language communities avenues de coopération fédérale-provinciale and, finally, the need for expanding quant à l’épanouissement des communautés opportunities for learning the other official de langues officielles et d’améliorer les language. possibilités d’apprentissage de l’une et l’autre des langues officielles18. 21. As for the Official Opposition in Parliament, Official Languages Critic Jean-Robert Gauthier went even further: C’est de là que vient le jeu des dimensions This is the origin of the interplay of the national nationales et régionales dont je parlais tout à and regional dimensions to which I referred l’heure. Les grands objectifs sont donc fixés au earlier. The broad goals are set at the national plan national. Cependant, chaque province a level. But each province has specific des responsabilités précises par lesquelles se responsibilities through which the national mettent en place les objectifs nationaux […]. goals are achieved […] It is the provinces that C’est aux provinces qu’il incombe d’établir sur will have to establish within their borders the leur territoire le régime linguistique convenant language regime best suited both to national le mieux, à la fois aux objectifs nationaux et objectives and to the particular needs of their aux besoins particuliers de leur population provincial population. That is why Canada’s provinciale. C’est pourquoi la mosaïque linguistic mosaic is so diverse. Quebec has its linguistique canadienne est si diversifiée. Le own language legislation, which reflects its Québec a sa propre législation linguistique qui unique linguistic and cultural situation. Alberta tient compte de ses particularités linguistiques and Saskatchewan have also adopted et culturelles. L’Alberta et la Saskatchewan se language legislation, more or less forceful, sont, elles aussi, donné des législations more or less acceptable, but which reflects linguistiques, plus ou moins fortes, plus ou their realities; so have Ontario, my own moins acceptables, mais qui tiennent compte province, and New Brunswick, the only officially de leurs réalités, tout comme l’ont fait l’Ontario, bilingual province in Canada, a status ma province, et le Nouveau-Brunswick, seule enshrined in the Constitution. In each case, Mr. province au Canada qui est bilingue Speaker, we see different solutions […]. officiellement et qui s’est enchâssée dans la Constitution. Dans chaque cas, monsieur le Président, on assiste à des solutions différentes […]19. 22. However, speeches by parliamentarians about Canada’s linguistic heterogeneity did not translate into recognition of New Brunswick’s unique character in the new federal OLA, despite it being a major topic on the agenda for constitutional talks surrounding the Meech Lake Accord. 23. The 1987 Constitutional Accord, better known as the Meech Lake Accord, proposed to amend the Constitution so that it would recognize (a) the roles of Parliament and provincial legislatures to protect the existence of French-speaking Canadians, centered in Quebec but also present elsewhere in Canada, and English-speaking Canadians, concentrated outside Quebec but also present in

18 Debates of the House of Commons, 33rd Parl., 2nd Sess., No. 10 (February 8, 1988), p. 12740. 19 Debates of the House of Commons, 33rd Parl., 2nd Sess., No. 14 (July 7, 1988), pp. 17225–26 [emphasis ours].

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Quebec, as a fundamental characteristic of Canada; and (b) the role of the Quebec legislature and government to protect and promote the fact that Quebec constitutes within Canada a distinct society.20 24. Several groups and individuals appeared before the Special Joint Committee of the Senate and the House of Commons on the 1987 Constitutional Accord to criticize this wording, particularly on the grounds that it would have risked condemning official language minorities to the status quo by entrenching their minority status. In New Brunswick, such a recognition was inconsistent with the equality of both official language communities enshrined into law in 1981. Perhaps this explains why Frank McKenna, then-leader of the opposition in the Legislative Assembly of New Brunswick, said the following: M. McKenna : Une autre question Mr. McKenna: There is another important d’importance : c’est le droit de la minorité. Et matter: the rights of the minority. This matter c’est une question d’une énorme importance has tremendous importance for the people of pour les gens du Nouveau-Brunswick, et je le New Brunswick and, I believe, for all crois, pour tous les Canadiens également. Canadians.

En vertu des modification proposées, les Under these amendments, the actions of the actions du Parlement du Canada seront jugées Parliament of Canada will be judged against its selon l’obligation qu’il aurait de protéger les obligation to preserve the fundamental caractéristiques fondamentales du Canada. characteristics of Canada. The actions of Les actions du Québec seront jugées selon Quebec will be judged against its obligation to son obligation de promouvoir et de protéger la promote and preserve a distinct society. The société distincte. L’obligation dévolue à une obligations of the one are greater than those of partie est plus importante que l’obligation the other. I believe that our Constitution must dévolue à l’autre. Je pense que notre recognize the obligation of Parliament to Constitution doit reconnaître l’obligation du promote the existence of both linguistic groups Parlement de promouvoir l’existence des deux throughout our nation. To only preserve a groupes linguistiques partout au pays. Se minority, is to condemn it to eventual limiter à protéger une minorité, c’est la assimilation. Surely that is not the collective condamner éventuellement à l’assimilation. Ce destiny which we intend for our country. I urge n’est certes pas là la destinée que nous you to include such an obligation for the réservons à notre pays. Je vous exhorte à [Government] of Canada. inclure une telle obligation pour le gouvernement du Canada.

Le fait qu’il n’y ait pas une telle clause diminue The failure to contain such a clause seriously sérieusement l’Accord. Cela laisse supposer detracts from the Accord. The implication is que la minorité anglophone du Québec pourrait that the minority anglophone population of avoir moins de droits que la majorité Québec could well have lesser rights than the francophone. Cela veut également dire que les francophone majority. It means that francophones hors Québec pourraient avoir francophones residing outside Quebec could moins de droits que les francophones du have lesser rights than the francophones of Québec. Je suis d’avis que les minorités Quebec. I believe that minorities deserve better méritent une meilleure protection de leurs protection of their rights whether these droits, qu’elles soient francophones ou minorities are anglophone or francophone. It is anglophones. Il s’agit là d’un élément a basic element of fairness. fondamental de justice.

20 House of Commons, Special Committee to Study the Proposed Companion Resolution to the Meech Lake Accord, Text of the Meech Lake Accord (reproduced in Appendix “C”), 34th Parl., 2nd Sess., No. 21 (May 1990), p. 63.

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Je vous encourage fortement à inclure dans la My plea is that minorities in this country and in Constitution la protection et la promotion des all provinces of whatever linguistic community minorités quelle que soient leurs provinces ou be offered protection and promotion under this leurs groupes linguistiques21. Constitution. 25. At the same hearing, Charles Hamelin asked whether Mr. McKenna intended to call for the Meech Lake Accord to be amended if he became premier of New Brunswick. The following exchange ensued: M. McKenna : Je peux vous assurer que j’ai Mr. McKenna: Sir, I can tell you that I am l’intention de négocier très fermement pour going to negotiate very strongly for obtenir des amendements qui amélioreront amendments that constitute improvements to l’accord […]. the accord […]

M. Hamelin : Vous allez le faire maintenant ou Mr. Hamelin: Are you going to do it now, or dans deux ans ? two years from that?

M. McKenna : J’ai l’intention de le faire Mr. McKenna: I intend to do it immediately immédiatement après les élections, si la after an election, should the people judge me population me donne sa confiance […]. to be the premier […]

Les préoccupations des groupes linguistiques The preoccupation of minority language groups minoritaires sont importantes. Vous me is important. You have asked whether it is demandez si elles sont essentielles. Je peux essential. I can tell you it is important. It is vous dire que c’est important. C’est important important to them in every province of Canada. pour ces groupes dans toutes les provinces du I intend to use the bargaining leverage that I Canada. Et j’ai l’intention de faire appel à toute hope is available to me to try and advance their la marge de manœuvre dont je dispose pour cause. défendre leur cause.

J’espère que la province de Québec se I do hope that the Province of Quebec will see reconnaisse un rôle de leadership pour itself as a leader and will protect and promote protéger et promouvoir les droits de toutes les the rights of all the other linguistic minorities in autres minorités linguistiques dans ce pays. this country. I do hope that the Province of J’espère que la province de Québec se Quebec will take on this role for itself. reconnaisse ce rôle pour elle-même22. 26. On March 21, 1990, then-premier McKenna introduced two resolutions in the Legislative Assembly of New Brunswick: the Meech Lake Accord and a companion resolution proposing a series of additional constitutional amendments that would take effect following the proclamation of the Meech Lake Accord, including an amendment to entrench the equality of New Brunswick’s two official language communities in the Constitution. Brian Mulroney referred New Brunswick’s companion resolution to a special House of Commons committee, whose hearings gave Premier McKenna the opportunity to make the Government of New Brunswick’s position crystal clear: M. McKenna : Nous ne sommes aucunement Mr. McKenna: We do not object to the opposés à la reconnaissance du Québec à titre recognition of Quebec as a distinct society.

21 House of Commons, Special Joint Committee of the Senate and the House of Commons on the 1987 Constitutional Accord, 33rd Parl., 2nd Sess., No. 12 (August 25, 1987), pp. 6–7 [Special Joint Committee on the 1987 Constitutional Accord]. 22 Special Joint Committee on the 1987 Constitutional Accord, supra, pp. 12:13-14.

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de société distincte. C’est une réalité This is an historical fact. We acknowledge the historique. Nous reconnaissons que le Government of Quebec must have a gouvernement du Québec doit jouer un rôle constitutionally recognized role to preserve that reconnu dans la constitution en ce qui a trait à historical reality. However, the maintenance of la protection et à la promotion de cette réalité the French language and culture throughout historique. Néanmoins, le maintien de la Canada can only be assured through active langue et de la culture française dans promotion. That is outside the province of l’ensemble du Canada ne peut être assuré Quebec. We must never forget that somewhere qu’au moyen d’une promotion active. Je veux in the vicinity of 1 million francophones live parler de l’extérieur du Québec. Nous ne outside the borders of the province of Quebec devons jamais oublier que près d’un million de and that they, much more than francophones francophones vivent en dehors des limites du within the province of Quebec, face the Québec et que ce sont eux, beaucoup plus que constant danger of assimilation every day. les francophones du Québec, qui font constamment face au danger quotidien de l’assimilation.

L’importance de cet élément pour le Nouveau- New Brunswick’s stake in this is inestimable. It Brunswick est inestimable. Il s’agit également is also a goal shared by francophones d’un but partagé par les francophones dans throughout the country, indeed by thoughtful l’ensemble du pays et, effectivement, par les Canadians from all backgrounds who Canadiens de toutes origines qui sont recognize the importance and the legitimacy of consciencieux et qui reconnaissent our national heritage and bilingual character. l’importance et la légitimité de notre patrimoine The presence of francophone Canadians from national et de notre caractère bilingue. La coast to coast is a fact, and Quebec should not présence de francophones canadiens d’un be held personally and totally responsible for océan à l’autre est une réalité, et l’on ne peut the protection and preservation of these tenir le Québec seul responsable de ces communities. […] collectivités. […]

La situation linguistique du Nouveau- New Brunswick’s linguistic situation: In order to Brunswick : Dans le but de reconnaitre la recognize New Brunswick’s situation within situation du Nouveau-Brunswick au sein du Canada, we became the only officially bilingual Canada, nous sommes devenus la seule province and the only province which has province officiellement bilingue et la seule legally and constitutionally committed itself to province qui se soit engagée légalement et the total equality of our French and English- constitutionnellement quant à l’égalité totale de speaking communities. nos communautés francophones et anglophones.

Notre résolution complémentaire propose donc Our companion resolution therefore proposes l’ajout d’une nouvelle disposition qui the addition of a further clause reflecting the exprimerait les principes de la Loi principles of our Act recognizing the equality of reconnaissant l’égalité des deux communautés the two official linguistic communities in New linguistiques officielles au Nouveau-Brunswick, Brunswick, by adding the recognition that en faisant valoir qu’au Nouveau-Brunswick, la within New Brunswick, the English linguistic communauté linguistique anglophone et la community and the French linguistic communauté linguistique francophone ont community have equality of status and equal l’égalité de statut et l’égalité des droits et rights and privileges. privilèges.

Les principes de la Loi sur les langues The principles of New Brunswick’s Official officielles du Nouveau-Brunswick sont déjà Languages Act are already entrenched in inscrits dans les articles 16 à 20 de la Charte sections 16 through 20 of the Charter of Rights. des droits. Nous proposons que soit We propose the same entrenched protection constitutionnalisé la même protection

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concernant les dispositions sur l’égalité dont for the equality provisions to which I have j’ai parlé. referred above.

Cette loi profite à nos communautés anglophones et francophones en leur The act benefits both our English and our accordant un statut et des droits et privilèges French communities by giving them equal égaux. Elle pourrait dorénavant être modifiée status, rights, and privileges. It could seulement avec l’approbation de notre henceforth be amended only with the approval assemblée législative et celle du gouvernement of our legislative assembly and the du Canada23. Government of Canada. 27. According to Premier McKenna, adding section 16.1 to the Charter would effectively make New Brunswick a distinct society: M. McKenna : Il est vrai que la disposition que Mr. McKenna: Yes, the provision New le Nouveau-Brunswick entend inclure dans la Brunswick introduced in the interpretive clause d’interprétation, les mesures touchant section, the equality provisions, effectively in a l’égalité, aurait effectivement pour effet de faire sense makes us a distinct society as well. The de nous aussi une société distincte. L’Ironie really funny thing about it all is that we can do veut que nous puissions aboutir à cela avec that with just two jurisdictions, the Government l’accord de seulement deux juridictions, le of Canada and the Province of New Brunswick. gouvernement du Canada et la province du Nouveau-Brunswick24. 28. Following the failure of the Meech Lake Accord, the federal government and several provinces, including New Brunswick, established constitutional commissions. The various reports of these commissions laid the groundwork for the Charlottetown Accord, which followed soon after. The New Brunswick Commission on Canadian Federalism recommended that the Constitution include a “clause recognizing the equality of status, equal rights and privileges of the English and French linguistic communities in New Brunswick and that this equality includes the right to distinct educational institutions and such distinct, cultural institutions as are necessary for the preservation and promotion of these communities.”25 29. This was also the context in which the Special Joint Committee on a Renewed Canada, responsible for compiling the responses to federal constitutional proposals tabled in September 1991, was tasked with consulting Canadians, which took the form of constitutional conferences held in 1992 across Canada. When the committee visited Fredericton, Premier McKenna reiterated his desire to entrench An Act Recognizing the Equality of the Two Official Linguistic Communities in New Brunswick in the Constitution: M. Nystrom (Yorkston – Melville) : […] Il y a Mr. Nystrom (Yorkston – Melville): […] I deux ans, monsieur le premier ministre, recall, Mr. Premier, a couple of years ago when

23 Parliament of Canada, Minutes of proceedings and evidence of the Special Committee to Study the Proposed Companion Resolution to the Meech Lake Accord, 34th Parl., 2nd Sess., No. 1 (April 1990), pp. 22-23. 24 Parliament of Canada, Minutes of proceedings and evidence of the Special Committee to Study the Proposed Companion Resolution to the Meech Lake Accord, 34th Parl., 2nd Sess., No. 1 (April 1990), p. 46. 25 New Brunswick Commission on Canadian Federalism, Report of the New Brunswick Commission on Canadian Federalism, 1992, p. 29.

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lorsque vous avez suggéré la résolution you suggested a companion resolution to the d’accompagnement à l’Accord du lac Meech, Meech Lake accord you were talking about vous parliez de renforcer par voie strengthening in the constitutional sense, the constitutionnelle la Loi sur les langues Official Languages Act in New Brunswick. We officielles au Nouveau-Brunswick, c’est-à-dire can do that, of course, through section 43 of par le biais de l’article 43 de la Constitution et the Constitution by passing a resolution in New par l’adoption d’une résolution au Nouveau- Brunswick and also in the House of Commons Brunswick, puis à la Chambre des communes in Ottawa. à Ottawa.

À cette époque-là, les trois partis et vous- There were talks at the time among the three même aviez convenu de le faire au moment le parties and yourself about doing that at an plus opportun. La communauté acadienne et appropriate time. There has also been some d’autres groupes aussi ont également exercé pressure from the Acadian community and des pressions pour que vous fassiez others to enshrine what I believe is your enchâsser dans la Constitution le projet de provincial Bill 88 [An Act Recognizing the loi 88 de votre province [la Loi reconnaissant Equality of the Two Official Linguistic l’égalité des deux communautés linguistiques Communities in New Brunswick] into the officielles au Nouveau-Brunswick], ou à tout le Constitution, or certainly the important thrust of moins son idée maîtresse. Pouvez-vous nous Bill 88. What advice do you have for us on that dire ce que vous en pensez aujourd’hui, et s’il issue today, and would it be useful that we serait utile de recommander au Parlement recommend to the Parliament expanding d’élargir la notion de bilinguisme au Nouveau- bilingualism in New Brunswick in the Brunswick pour qu’elle ait une portée constitutional sense? constitutionnelle ?

M. McKenna : Vous êtes fort bien informé, Mr. McKenna: You’re very well informed, Hon. monsieur, et je répondrai avec plaisir. Member, and let me respond to the concerns as they come.

Vous avez tout à fait raison en ce qui concerne With respect to section 43, you are absolutely l’article 43. Notre Commission s’y est arrêté right. Our commission has given a great deal of longuement et elle recommande d’enchâsser attention to that. Our commission is dans la Constitution l’égalité des communautés recommending that the equality of New de langues officielles du Nouveau-Brunswick ; Brunswick’s official language communities be je trouverais utile que, dans vos contacts avec entrenched in the Constitution, and yes, it la Commission, vous en discutiez avec elle et would be helpful if, when you issue with them, que vous abordiez la recommandation dans and in your final report address that votre rapport final, puisque la province du recommendation, because that is still on the Nouveau-Brunswick a toujours pour agenda for the Province of New Brunswick to programme de faire en sorte que la assure that the Constitution of Canada Constitution du Canada reconnaisse l’égalité recognizes that our two language communities de nos deux communautés linguistiques. are equal. In fact, the commission has D’ailleurs, la commission a déjà identifié identified several of the institutions, educational plusieurs de nos institutions tant éducatives and cultural, that represent important que culturelles qui sont la preuve vivante de manifestations of that equality. That’s cette égalité. C’est important. […] important. […]

M. Ouellet (Papineau – Saint-Michel) : […] Mr. Ouellet (Papineau – Saint-Michel): […] Quand et comment prévoyez-vous que cet When and how do you think the entrenchment enchâssement de la clause 88 puisse se of clause 88 might be done? faire ?

M. McKenna : L’enchâssement de l’égalité qui Mr. McKenna: Entrenching the equality est recommandé par la commission de la principle as recommended by the New province du Nouveau-Brunswick est une Brunswick Commission is a bilateral matter

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question bilatérale entre les deux between our two governments. Therefore, it is gouvernements. Il est donc possible d’être à possible to deal with it outside this round of l’extérieur de cette ronde de discussions constitutional discussion, though it is also constitutionnelles, mais aussi d’en faire partie, possible to deal within it, since it is not parce qu’il n’est pas nécessaire d’avoir le necessary to reach a consensus among all consensus de tous les participants […]26. participants […]. 30. In a 1992 referendum, the Charlottetown Accord was rejected by 54.3% of voters across Canada, although not in New Brunswick, where the “yes” side won with 62% of the votes. 31. The following year, 1993, section 16.1 was added to the Charter through a bilateral constitutional amendment,27 following resolutions adopted by the House of Commons and the Senate of Canada and by the Legislative Assembly of New Brunswick: Communautés linguistiques française et English and French linguistic communities anglaise du Nouveau-Brunswick in New Brunswick 16.1 (1) La communauté linguistique française 16.1(1) The English linguistic community and et la communauté linguistique anglaise du the French linguistic community in New Nouveau-Brunswick ont un statut et des droits Brunswick have equality of status and equal et privilèges égaux, notamment le droit à des rights and privileges, including the right to institutions d’enseignement distinctes et aux distinct educational institutions and such institutions culturelles distinctes nécessaires à distinct cultural institutions as are necessary for leur protection et à leur promotion. the preservation and promotion of those communities.

Rôle de la législature et du gouvernement Role of the legislature and government of du Nouveau-Brunswick New Brunswick (2) Le rôle de la législature et du gouvernement (2) The role of the legislature and government du Nouveau-Brunswick de protéger et de of New Brunswick to preserve and promote the promouvoir le statut, les droits et les privilèges status, rights and privileges referred to in visés au paragraphe (1) est confirmé. subsection (1) is affirmed. 32. Unlike the federal OLA, which was modernized in 1988 to bring it in line with the Charter, the NB OLA did not go through such a process at that time. The provincial legislature did consider amending the NB OLA, but it ended up not doing so.28 Not until the validity of a municipal by-law adopted by the City of Moncton in English only was challenged29 did the Legislative Assembly of New Brunswick modernize

26 Parliament of Canada, Minutes of proceedings and evidence of the Special Joint Committee on a Renewed Canada, 34th Parl., 3rd Sess., No. 42 (January 15, 1992), pp. 21–22, 27. 27 Constitution Act, 1982, s. 43, being Schedule B to the Canada Act 1982 (UK), 1982, c 11; Constitutional Amendment, 1993 (New Brunswick), SI/93-54. 28 Government of New Brunswick, Official Languages Branch, Towards Equality of the Official Languages in New Brunswick, Fredericton, 1982 (Poirier-Bastarache Report); Government of New Brunswick, Report of the Advisory Committee on Official Languages of New Brunswick, Fredericton, 1986 (Guérette-Smith Report). 29 Charlebois v. Mowat, 2001 NBCA 117. The Court ruled that the City of Moncton did not comply with its constitutional obligation under subsection 18(2) of the Charter when it failed to adopt, print and publish its municipal by-laws in both official languages of New Brunswick, and it invalidated them. However, the Court suspended the effect of its declaration of invalidity to allow the Legislative Assembly to update the NB OLA.

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the NB OLA for the first time in 2002. Since then, the NB OLA was updated again in 2013 (Appendix “D”).

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PART II – The Office of the Commissioner urges Parliament to acknowledge the unique character of New Brunswick in a modernized federal OLA and to align the federal and New Brunswick language regimes wherever possible 33. New Brunswick has a unique constitutional and legislative regime for language rights, which is currently not reflected in the federal OLA. Modernization of the federal OLA creates an opportunity to address this discrepancy and to attempt to align the federal and New Brunswick legislative regimes with respect to official languages in order to implement (or better implement) the constitutional rights of New Brunswickers. 34. The Office of the Commissioner recommends that the federal OLA be amended to (A) align the obligations of the federal and New Brunswick governments to offer services to and communicate with the public in both official languages and (B) ensure that the federal government takes into account and supports the equality of status and the equal rights and privileges of the English and French linguistic communities of New Brunswick, including the distinct institutions to which they are entitled. A. The Office of the Commissioner recommends that the federal OLA require the federal government to offer its services and communicate in both official languages throughout New Brunswick 35. Section 20 of the Charter establishes the right of members of the public to use the official language of their choice with institutions of the Parliament or government of Canada and with institutions of the legislature or government of New Brunswick: Communications entre les administrés et Communications by public with federal les institutions fédérales institutions 20(1) Le public a, au Canada, droit à l’emploi 20(1) Any member of the public in Canada has du français ou de l’anglais pour communiquer the right to communicate with, and to receive avec le siège ou l’administration centrale des available services from, any head or central institutions du Parlement ou du gouvernement office of an institution of the Parliament or du Canada ou pour en recevoir les services ; il government of Canada in English or French, a le même droit à l’égard de tout autre bureau and has the same right with respect to any de ces institutions là où, selon le cas : other office of any such institution where

a) l’emploi du français ou de l’anglais fait (a) there is a significant demand for l’objet d’une demande importante ; communications with and services from that office in such language; or b) l’emploi du français et de l’anglais se (b) due to the nature of the office, it is justifie par la vocation du bureau. reasonable that communications with and services from that office be available in both English and French.

Communications entre les administrés et Communications by public with New les institutions du Nouveau-Brunswick Brunswick institutions (2) Le public a, au Nouveau-Brunswick, droit à (2) Any member of the public in New Brunswick l’emploi du français ou de l’anglais pour has the right to communicate with, and to communiquer avec tout bureau des institutions receive available services from, any office of an de la législature ou du gouvernement ou pour institution of the legislature or government of en recevoir les services. New Brunswick in English or French.

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36. There is an obvious imbalance between both subsections of section 20: (a) at the federal level, members of the public have the right to use English or French to communicate with or receive services from the offices of institutions of Parliament or the government of Canada where there is a significant demand for communications with and services from that office in such language or due to the nature of the office, it is reasonable that communications with and services from that office be available in both English and French; and (b) in New Brunswick, members of the public have the unconditional right to use English or French to communicate with or receive services from any office of an institution of the legislature or government of New Brunswick. 37. As described by the Supreme Court of Canada, New Brunswick has a regime of “complete institutional bilingualism.”30 This regime, unique to New Brunswick, is a true social contract between the province’s two linguistic communities – a social contract based on the shared values of respect, equality and vitality – and a founding part of New Brunswick’s identity. 38. This constitutional uniqueness of New Brunswick in terms of the language of service and communication with the public is reflected in the NB OLA. Section 27 of the current NB OLA guarantees the public’s right to communicate with any institution of the legislature and government of New Brunswick (including courts, any agency, board, commission, council, office or other body established to perform a government function pursuant to provincial legislation, provincial departments, Crown corporations established pursuant to provincial legislation, etc.) and to receive services in the official language of their choice, while section 28 of the NB OLA codifies the corresponding obligation of these same institutions: Communication avec le public Communication with the public 27 Le public a le droit de communiquer avec 27 Members of the public have the right to toute institution et d’en recevoir les services communicate with any institution and to receive dans la langue officielle de son choix. its services in the official language of their choice.

28 Il incombe aux institutions de veiller à ce 28 An institution shall ensure that members of que le public puisse communiquer avec elles et the public are able to communicate with and to en recevoir les services dans la langue receive its services in the official language of officielle de son choix. their choice. 39. Sections 21 and 22 of the federal OLA use the wording of subsection 20(1) of the Charter by making the concept of “significant demand” a condition for services to be offered by the offices of federal institutions in either official language across the country, including New Brunswick: Droits en matière de communication Rights relating to language of communication

21 Le public a, au Canada, le droit de 21 Any member of the public in Canada has communiquer avec les institutions fédérales et the right to communicate with and to receive

30 Société des Acadiens et Acadiennes du Nouveau-Brunswick Inc. v. Canada, 2008 RCS 15, para 1.

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d’en recevoir les services conformément à la available services from federal institutions in présente partie accordance with this Part.

Langues des communications et services Where communications and services must be in both official languages 22 Il incombe aux institutions fédérales de 22 Every federal institution has the duty to veiller à ce que le public puisse communiquer ensure that any member of the public can avec leur siège ou leur administration centrale, communicate with and obtain available et en recevoir les services, dans l’une ou services from its head or central office in either l’autre des langues officielles. Cette obligation official language, and has the same duty with vaut également pour leurs bureaux — auxquels respect to any of its other offices or facilities sont assimilés, pour l’application de la présente (a) within the National Capital Region; or partie, tous autres lieux où ces institutions (b) in Canada or elsewhere, where there is offrent des services — situés soit dans la significant demand for communications with région de la capitale nationale, soit là où, au and services from that office or facility in that Canada comme à l’étranger, l’emploi de cette language. langue fait l’objet d’une demande importante. 40. In New Brunswick, all federal institutions are subject to this obligation and therefore to the condition of “significant demand.”31 This means that the federal OLA allows several offices of federal institutions in New Brunswick to be unilingual. Currently, at least 2 federal offices offer services only in French and at least 51 federal offices offer services only in English. These data are made available by the federal government on its Burolis website, a database of federal offices providing services in English, French or both languages under the Official Languages (Communications with and Services to the Public) Regulations.32 Examples of these federal offices providing services in English only include 15 Canada Border Services Agency offices, the Correctional Service of Canada in Saint John, and the Saint John Airport. 41. It should be possible, in New Brunswick, to communicate with all provincial and federal institutions in the official language of one’s choice. The federal government should, at a minimum, be required to do the same as the provinces when they have a more generous language regime, as is the case in New Brunswick. 42. In New Brunswick, there is therefore a striking dissonance between “complete institutional bilingualism” in provincial communications and services and partial and localized bilingualism in federal institutions. The current wording of section 22 of the federal OLA has allowed for the imposition of “significant demand” consistently across the country.33 The only provincial institutions exempt from the obligations of the NB OLA are exempted out of respect for the right of the English and French linguistic communities of New Brunswick to distinct educational and

31 The definition of “federal institution” includes any federal court, any board, commission or council, or other body or office, established to perform a governmental function pursuant to an Act of Parliament, a department of the Government of Canada, and a Crown corporation established pursuant to an Act of Parliament (Official Languages Act, supra, subs. 3(1), under “federal institution.” 32 However, these data exclude Canada Post offices delivering services in only one language because they unfortunately fall outside the scope of the Burolis website. 33 Official Languages (Communications with and Services to the Public) Regulations, SOR/92-48.

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cultural institutions.34 However, the federal OLA allows several offices of federal institutions in New Brunswick to be unilingual; this is a significant and unwarranted limitation on New Brunswick’s regime of “complete institutional bilingualism.” 43. The federal government’s commitment to “enhancing the vitality of the English and French linguistic minority communities in Canada and supporting and assisting their development; and fostering the full recognition and use of both English and French in Canadian society”35 did not prevent such a limitation from being placed on New Brunswick’s “complete institutional bilingualism” and the equality of status of its English and French linguistic communities, even though it has been enshrined in the Constitution since 1993.36 44. Neither did section 32 of the federal OLA prevent such a limitation. It reads as follows: Règlements Regulations 32(1) Le gouverneur en conseil peut, par 32(1) The Governor in Council may make règlement : regulations a) déterminer, pour l’application de l’article 22 (a) prescribing the circumstances in which […], les circonstances dans lesquelles il y a there is significant demand for the purpose of demande importante ; […] paragraph 22(b) or subsection 23(1); […]

Critères Where circumstances prescribed under paragraph (1)(a) or (b) (2) Le gouverneur en conseil peut, pour (2) In prescribing circumstances under déterminer les circonstances visées aux paragraph (1)(a) or (b), the Governor in Council alinéas (1)a) ou b), tenir compte : may have regard to a) de la population de la minorité (a) the number of persons composing the francophone ou anglophone de la région English or French linguistic minority desservie, de la spécificité de cette minorité population of the area served by an office or et de la proportion que celle-ci représente par facility, the particular characteristics of that rapport à la population totale de cette région ; population and the proportion of that population to the total population of that area; b) du volume des communications ou des (b) the volume of communications or services services assurés entre un bureau et les between an office or facility and members of utilisateurs de l’une ou l’autre langue the public using each official language; and officielle ; c) de tout autre critère qu’il juge indiqué. (c) any other factors that the Governor in Council considers appropriate. 45. Section 32 of the federal OLA did not lead the federal government to consider New Brunswick’s “complete institutional bilingualism” or the constitutional protection of the equality of status of its English and French linguistic communities in determining the circumstances in which “demand” is significant.

34 Under section 4 of the NB OLA, “distinct educational institutions and distinct cultural institutions and, without limiting the generality of the foregoing, the school system in New Brunswick including the English and French sections of the Department of Education including schools and their committees, councils and boards, community centres and universities and, where applicable, community colleges” are excluded from the definition of “institution.” 35 Official Languages Act, supra, s. 41. 36 Charter, supra, s. 16.1.

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46. Parliament should therefore adjust the wording of section 22 of the OLA to reflect, in New Brunswick, the constitutional framework in which it operates and to ensure that the federal system is consistent with (not opposed to) it and New Brunswick’s “complete institutional bilingualism”. The Office of the Commissioner calls on Parliament to modernize the federal OLA in order to expressly require that the federal government offer its services and communicate in both official languages throughout New Brunswick. To achieve this, all that is required is to provide that the obligations set out in section 22 of the federal OLA apply to all offices of federal institutions in New Brunswick (emphasis indicates the proposed addition to the federal OLA): Langues des communications et services Where communications and services must be in both official languages 22 Il incombe aux institutions fédérales de 22 Every federal institution has the duty to veiller à ce que le public puisse communiquer ensure that any member of the public can avec leur siège ou leur administration centrale, communicate with and obtain available et en recevoir les services, dans l’une ou services from its head or central office in either l’autre des langues officielles. Cette obligation official language, and has the same duty with vaut également pour leurs bureaux — auxquels respect to any of its other offices or facilities sont assimilés, pour l’application de la présente (a) within the National Capital Region and partie, tous autres lieux où ces institutions New Brunswick; or offrent des services — situés soit dans la (b) in Canada or elsewhere, where there is région de la capitale nationale et au Nouveau- significant demand for communications with Brunswick, soit là où, au Canada comme à and services from that office or facility in that l’étranger, l’emploi de cette langue fait l’objet language. d’une demande importante. B. The Office of the Commissioner recommends that the federal OLA require the government to consider and support the equality of status and the equal rights and privileges of the English and French linguistic communities in New Brunswick, including the distinct institutions to which they are entitled 47. Section 16.1 of the Charter entrenches the equal rights and privileges of the English and French communities in New Brunswick, including their right to “distinct educational institutions and such distinct cultural institutions as are necessary for the preservation and promotion of those communities.” 48. The Office of the Commissioner explains the rationale for this constitutional guarantee as follows: Pour s’épanouir, toute communauté To flourish, any linguistic community needs linguistique a besoin de lieux où elle peut vivre places where its members can live fully in their pleinement dans sa langue. C’est la raison language. That’s the reason for having distinct d’être des institutions culturelles et éducatives cultural and educational institutions. By distinctes. En assurant le développement de ensuring the development of each community, chaque communauté, ces institutions these institutions promote the equality of the favorisent l’égalité des deux communautés. Et two groups. And equality fosters unity. l’égalité favorise l’unité.

Des institutions distinctes n’empêchent However, distinct institutions do not prevent toutefois pas le dialogue entre les deux dialogue between the two linguistic groups. groupes linguistiques. Ils se côtoient They come together regularly, in many areas of régulièrement dans plusieurs domaines activity, for example, at work or at play.

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d’activité, par exemple au travail ou dans les loisirs37. 49. This constitutional recognition, unique in Canada, is not reflected anywhere in the current federal OLA. Yet, the equal rights and privileges of New Brunswick’s official language communities must influence federal public policies generally and must also govern, more specifically, the exercise of federal spending power, particularly in education and culture. 50. The right under section 16.1 to distinct educational institutions begins in early childhood, unlike in section 23 of the Charter, which deals with the right of citizens to have their children receive primary and secondary school instruction. Section 16.1 does not contain such an internal limitation, nor does it contain the numerical requirement set out in section 23. As the Office of the Commissioner noted earlier, if the government wishes to give children, including francophone children, every chance of success, it must fully implement the principle of duality in early childhood services.38 The same is also true for postsecondary education. The substantive equality of the rights of New Brunswick’s English and French linguistic communities depends on it. 51. Moreover, as per the broad and non-exhaustive wording of section 16.1 of the Charter, not only are homogeneous educational settings - from early childhood to postsecondary - necessary to protect and promote a linguistic community, but also, each official language community has the right to its own cultural institutions. 52. Parliament should modernize the federal OLA, in light of the addition of section 16.1 to the Charter in 1993, to provide for and regulate the federal government’s obligation to consider the equal rights and privileges of New Brunswick’s English and French linguistic communities. Such modernization could be achieved by providing in Part VII of the federal OLA an additional commitment – along with an obligation to take positive measures to implement it – by the federal government to recognize and promote the equality of status and the equal rights and privileges of New Brunswick’s English and French linguistic communities, including the right of these communities to the distinct educational and cultural institutions necessary for their protection and promotion. Such a regime would regulate the federal government’s spending power. 53. For example, the Department of Canadian Heritage has been signing agreements with provincial and territorial governments under its Official Languages in Education Program since 1970.39 These agreements set out the terms and

37 Office of the Commissioner of Official Languages for New Brunswick, news release, “Let’s Set the Record Straight - Myths and Realities about Official Languages in NB“ (September 14, 2016). 38 Office of the Commissioner of Official Languages for New Brunswick, Official Languages: Move Forward or Lose Ground, 2010-2011 Annual Report, (September 2011), p. 12 [Office of the Commissioner, 2010-2011 Annual Report]. 39 For example, see: Canada, Council of Ministers of Education, Canada, Protocol for Agreements for Minority‐Language Education and Second‐Language Instruction 2013‐2014 to 2017‐2018 between the Government of Canada and the Council of Ministers of Education, Canada, signed on August 14, 2013, in Ottawa; Canada, Canadian Heritage, Canada–New Brunswick Agreement on French First-language Education and Second-language Instruction 2013–2104 to 2017–2018, signed in August 2013 in Ottawa.

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conditions for the transfer of federal funds to cover the additional costs of minority language education and second language instruction. The amendment to the federal OLA recommended by the Office of the Commissioner would require the Department of Canadian Heritage to adopt a “New Brunswick lens” and to consider the rights of its English and French linguistic communities to distinct educational and cultural institutions when negotiating such agreements. 54. The Canada–New Brunswick bilateral agreement under the Multilateral Framework on Early Learning and Child Care is another example of an agreement that should be negotiated by the federal government taking into account the equal rights and privileges of New Brunswick’s English and French linguistic communities.40 55. The right of New Brunswick’s English and French linguistic communities to distinct cultural and community institutions, necessary for their protection and promotion, should be taken into account when negotiating collaboration accords between the Department of Canadian Heritage and official language minority communities.41 56. Lastly, the constitutional equality of both official linguistic communities in New Brunswick must also inform the development and implementation of the federal government’s immigration policies. The federal OLA should require the federal government to take into account New Brunswick’s specific linguistic balance and the recognition of the equality of status and equal rights and privileges of the province’s English and French linguistic communities in its immigration policies so as to maintain the existing linguistic balance. PART III – Parliament should draw on New Brunswick’s experience with official languages in modernizing the federal OLA 57. New Brunswick has a long and rich experience in official languages, which should be considered as part of the modernization of the OLA. Ever since the province adopted the country’s first official languages legislation in April 1969, it has seen many developments in language rights and has been able to test various proposals for advancing the rights of its francophone minority. New Brunswick is a kind of “testing ground” that can inform the modernization of the federal OLA with respect to necessary or promising legislative changes. In this section, the Office of the Commissioner makes recommendations based on New Brunswick’s rich experience in official languages. a) Learn from the NB OLA implementation model 58. While the country’s first official languages legislation, the NB OLA of 1969, did not give responsibility for its implementation to any specific authority, in 2002, the new

40 Canada, Employment and Social Development Canada, Multilateral Early Learning and Child Care Framework, June 12, 2017; Canada, Employment and Social Development Canada, Canada–New Brunswick Early Learning and Child Care Agreement, signed on August 30, 2017, in Moncton. 41 See generally: House of Commons, Standing Committee on Official Languages, The Collaboration Accords Between Canadian Heritage and the Community Organizations - An Evolving Partnership, (June 2008) 39th Parl., 2nd Sess. (Chair: Steven Blaney).

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NB OLA provides in section 2 that its implementation is the Premier’s responsibility.42 59. In 2004, one year after taking office, the Commissioner stressed the importance of having a master plan for implementing the NB OLA, implementation strategies developed by each provincial institution subject to the NB OLA, and a coordinating agency responsible for its implementation,43 in order to achieve the new language regime’s objectives.44 The Commissioner reiterated this recommendation several times. It was not until 2011 that the Government of New Brunswick adopted the first NB OLA implementation plan.45 60. In 2013, the Select Committee on the Revision of the NB OLA expressed the importance of requiring the government to come up with a comprehensive plan for ensuring compliance with the NB OLA.46 In response to this recommendation, when the NB OLA was renewed in 2013, the Legislature Assembly provided in new section 5.1 a legal obligation for the Government of New Brunswick to develop an implementation plan and to develop the parameters for such a plan. The section gives the Premier ultimate responsibility for coordinating and implementing the comprehensive plan, while mandating the various components of the public service to develop their own action plans, which should contribute to the comprehensive plan: Plan de mise en application Implementation plan 5.1(1) La province élabore un plan établissant 5.1(1) The Province shall prepare a plan les modalités de respect des obligations que lui setting out how it will meet its obligations under impose la présente loi, lequel énonce this Act, and the plan shall include the notamment : following: a) les buts et les objectifs afférents à ses (a) goals and objectives with respect to its obligations ; obligations under this Act; b) les mesures propres à assurer l’égalité de (b) measures to ensure the equality of status statut des deux communautés linguistiques ; of the two linguistic communities; c) les mesures propres à assurer l’égalité (c) measures to ensure the equality of use of d’usage du français et de l’anglais dans les the English and French language in the services publics ; public service; d) les mesures propres à assurer la prise en (d) measures to ensure that language of work compte de la langue de travail dans la is considered when identifying work groups détermination des équipes de travail au sein within the public service and when des services publics et l’élaboration des developing language profiles for positions in profils linguistiques des postes dans les the public service; services publics ;

42 NB OLA, supra, s. 2. 43 Office of the Commissioner of Official Languages for New Brunswick, Annual Report 2003-2004, (September 2004), p. 7 [Office of the Commissioner, Annual Report 2003-2004]. 44 See Office of the Commissioner, Annual Report 2003-2004, supra. 45 Government of New Brunswick, Government Plan on Official Languages: Official Bilingualism – A Strength 2011-2013, (CNB 7047) (September 2011). 46 Legislative Assembly of New Brunswick, Report of the Select Committee on the Revision of the Official Languages Act, p. 21: “This plan should present a variety of ways to meet challenges and contain innovative actions to promote the creation of a bilingual culture within the civil service and to advance the substantive equality of both official linguistic communities. This comprehensive plan should also identify mechanisms to put in place so that government can reflect the specific reality of each linguistic community when developing its programs and policies.”

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e) les mesures propres à améliorer la (e) measures to improve the bilingual capacité bilingue de la haute direction au capacity of senior management in the public sein des services publics ; service; f) les mesures propres à prévoir la révision et (f) measures to provide for the review and the l’amélioration, au besoin, de ses politiques improvement, when necessary, of the public en matière d’affichage public en tenant signage policies of the Province, which compte des deux communautés linguistiques policies shall include consideration of the two et de la composition linguistique d’une linguistic communities and of the linguistic région ; composition of a region; and g) les mesures de rendement affectées à (g) performance measures for evaluating the l’évaluation de l’efficacité des mesures effectiveness of the measures implemented appliquées dans le cadre du plan et aux under the plan and time frames within which délais impartis pour leur mise en application. they must be implemented.

5.1(2) Le premier ministre est chargé d’assurer 5.1(2) The Premier is responsible for ensuring la coordination gouvernementale centrale du central government coordination and oversight plan élaboré tel que le prévoit le paragraphe of the implementation of the plan prepared (1) et de veiller à sa mise en application. under subsection (1).

5.1(3) Chaque élément des services publics 5.1(3) Each portion of the public service shall élabore un plan d’action énonçant les prepare an action plan setting out how it will modalités d’atteinte tant des buts et des meet the goals and objectives included in the objectifs que prévoit le plan élaboré tel que le plan prepared under subsection (1) and how it prévoit le paragraphe (1) que de la mise en will implement the measures included in that application des mesures y prévues. plan.

5.1(4) Dans les plus brefs délais après la fin 5.1(4) As soon as practicable after the end of d’un exercice financier, chaque élément des each fiscal year, each portion of the public services publics présente au premier ministre service shall submit a report to the Premier un rapport des activités entreprises dans le with respect to the activities under its action cadre de son plan d’action. plan.

5.1(5) Dans les plus brefs délais après la fin 5.1(5) As soon as practicable after the end of d’un exercice financier et après réception des each fiscal year and after receiving the reports rapports que prévoit le paragraphe (4), le under subsection (4), the Premier shall submit premier ministre présente à l’Assemblée a report to the Legislative Assembly with législative le rapport des activités entreprises respect to the activities under the plan dans le cadre du plan élaboré en vertu du prepared under subsection (1). paragraphe (1). 61. In comparison, the federal OLA does not give any government entity authority or responsibility over its implementation. Instead, responsibility for implementing certain parts of the OLA are given to two federal institutions: Treasury Board (for Parts IV, V and VI) and the Minister of Canadian Heritage (for Part VII).47 62. Not only does the federal OLA not impose a legal obligation on the federal government to develop a comprehensive plan for implementing the federal OLA, as is the case in New Brunswick, but it also does not require either the Treasury Board or the Minister of Canadian Heritage to adopt master plans for implementing their respective commitments. It deals even less with the objectives and coordination of such plans to come up with practical ways to respect and promote language rights. The federal OLA merely allows the Treasury Board (“the Treasury

47 See the Official Languages Act, supra, ss. 42–44 (Canadian Heritage) and ss. 46–48 (Treasury Board).

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Board may”) to decide to take action in order to implement its obligations. This legislation does not give the Minister of Canadian Heritage any enforcement powers with respect to other federal departments. 63. The New Brunswick experience suggests that the OLA should give one government entity ultimate responsibility for its implementation. In particular, the Office of the Commissioner recommends that the entity responsible for implementing the federal OLA be a central agency with the horizontal powers necessary to carry out this role, including the power to take the lead in regulatory matters, access to government-wide funds and clear statutory powers to guide its role with respect to various components of the government. Without this central agency exercising an increased oversight role, implementation by institutions may be inadequate. This is reflected in the evaluation of New Brunswick’s Official Languages Plan, commissioned by the provincial Executive Council Office in 2014.48 64. As is the case with the NB OLA, the federal OLA should provide for and govern the production of a master implementation plan and require federal institutions subject to the OLA to prepare their own action plans that specifically indicate how they will achieve the objectives and measures set out in the federal plan. That said, the New Brunswick experience shows that it is not enough for the various components of the public service to be responsible for developing action plans and reporting on the activities undertaken to the central coordinating agency. Better oversight of the master plan’s implementation by the various institutions is needed. The Office of the Commissioner believes that the federal OLA should also require all institutions subject to it to submit regular progress reports to the central coordinating agency so that progress on implementing the plan can be better monitored. 65. Moreover, as revealed by the evaluation of New Brunswick’s 2014 Government Plan on Official Languages, it is very difficult to measure progress in official languages without systematic data collection.49 The Office of the Commissioner recommends that the federal OLA provide for the creation of effective tools to measure various indicators of the quality of bilingual services and the vitality of languages.

48 Executive Council Office, Evaluation Report of the Government Plan on Official Languages: Official Bilingualism – A Strength 2011-2013, prepared by the Consortia Development Group, commissioned by the Executive Council Office (2014) [Evaluation Report of the Government Plan on Official Languages: Official Bilingualism – A Strength 2011-2013] cited in Office of the Commissioner of Official Languages, 2014-2015 Annual Report (June 2015), pp. 47, 52 [Office of the Commissioner, 2014-2015 Annual Report]. 49 Evaluation Report of the Government Plan on Official Languages: Official Bilingualism – A Strength 2011-2013 cited in Office of the Commissioner, 2014-2015 Annual Report, supra, p. 52.

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b) Draw from specific obligations under the NB OLA Require a periodic review of the NB OLA 66. Unlike the NB OLA of 1969, the NB OLA of 2002 required the Premier to conduct a review of the NB OLA ten years later.50 67. This 10-year revision was important to address some of the shortcomings of the NB OLA and to make adjustments based on the experience of implementing it. Although not all of the recommendations of the Office of the Commissioner and representatives of the province’s official language communities would be reflected in the new version of the NB OLA in 2013, the review exercise provided an essential forum for sharing these recommendations. 68. For example, in addition to providing a framework for its implementation by the Premier (as discussed in the previous section) in new section 5.1 of the NB OLA, the 2013 revision led to the following important additions: i. The NB OLA now allows the Office of the Commissioner, after carrying out an investigation, to publish a report if it is considered to be in the public interest.51 ii. The NB OLA now prohibits reprisals against a person who made a complaint to the Office of the Commissioner or cooperated in an investigation.52 iii. The NB OLA requires the Premier to conduct a new review by 2021. 69. The Office of the Commissioner recommends to Parliament that the federal OLA be reviewed at least every ten years. The current federal OLA will soon be turning 30; society has changed so much since then that it is not surprising that the OLA no longer meets the needs of official language communities. 70. In light of the New Brunswick experience, it is also important to involve the community in these periodic reviews. During the NB OLA review, the francophone and Acadian communities were consulted, which included a public symposium held in November 2010 in Moncton. In December 2011, 29 Acadian and francophone organizations made a valuable contribution by sharing their ideas for amending the NB OLA. The Office of the Commissioner recommends having these consultation and community engagement processes formalized in the federal OLA to ensure transparency and effectiveness. 71. Lastly, the review period should include a time limit so that it is not unreasonably extended. This was in fact one of the Office of the Commissioner’s recommendations prior to the most recent NB OLA review.53 Require government institutions to publish notices and advertisements in both official languages 72. With respect to the publication of notices and advertisements by government institutions, the federal OLA does not currently require all texts to be published

50 NB OLA, supra, s. 42(1). 51 NB OLA, supra, s. 43(17.2). 52 NB OLA, supra, s. 43.1. 53 Office of the Commissioner, 2010-2011 Annual Report, supra, p. 19.

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simultaneously in English and French. The obligation under subsection 11(1) of the federal OLA is much weaker: Avis et annonces Notices, advertisements and other matters that are published 11(1) Les textes — notamment les avis et 11(1) A notice, advertisement or other matter annonces — que les institutions fédérales that is required or authorized by or pursuant to doivent ou peuvent, sous le régime d’une loi an Act of Parliament to be published by or fédérale, publier, ou faire publier, et qui sont under the authority of a federal institution principalement destinés au public doivent, là où primarily for the information of members of the cela est possible, paraître dans des public shall, publications qui sont largement diffusées dans (a) wherever possible, be printed in one of chacune des régions visées, la version the official languages in at least one française dans au moins une publication publication in general circulation within each d’expression principalement française et son region where the matter applies that appears pendant anglais dans au moins une publication wholly or mainly in that language and in the d’expression principalement anglaise. En other official language in at least one l’absence de telles publications, ils doivent publication in general circulation within each paraître dans les deux langues officielles dans region where the matter applies that appears au moins une publication qui est largement wholly or mainly in that other language; and diffusée dans la région. (b) where there is no publication in general circulation within a region where the matter applies that appears wholly or mainly in English or no such publication that appears wholly or mainly in French, be printed in both official languages in at least one publication in general circulation within that region. 73. Amending the wording of subsection 11(1) of the OLA to require simultaneous publication at all times would promote the equality of status and the use of both official languages. Parliament could base the wording on section 15 of the NB OLA, which sets out this strict obligation: 15 Les avis, pièces ou documents dont la 15 Notices, announcements and other présente loi ou toute autre loi exige la documents required to be published under this publication par la province ou ses institutions Act or any other Act by the Province or its sont imprimés et publiés dans les deux langues institutions shall be printed and published in officielles. both official languages. Protect complainants from reprisal 74. When the NB OLA was renewed in 2013, the Legislature included protection from reprisal for anyone who files a complaint with the Office of the Commissioner or cooperates in an investigation by the Office: Protection contre les représailles Protection from reprisal 43.1 Il est interdit d’exercer des représailles 43.1 No person shall take a reprisal against a contre un plaignant ou d’en ordonner l’exercice person or direct that one be taken against a du fait qu’il a déposé de bonne foi une plainte person because the person has made a auprès du commissaire ou collaboré à complaint in good faith to the Commissioner or l’enquête que prévoit la présente loi. cooperated in an investigation under this Act.

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75. In addition, any contravention of this provision is an offence punishable under the Provincial Offences Procedure Act.54 This protection was recommended by the Office of the Commissioner prior to the NB OLA review in 2013, after it found that people were reluctant to file complaints with the Office for fear of possible reprisals. 76. The Office of the Commissioner recommends that an equivalent provision be included in the federal OLA. Make investigation reports public 77. Since the renewal of the NB OLA in 2013, subsection 43(17.2) authorizes the Office of the Commissioner to make its investigation reports public: 43(17.2) Au terme de l’enquête que prévoit le 43(17.2) After carrying out an investigation paragraphe (10) et s’il estime que l’intérêt under subsection (10), if the Commissioner public le commande, le commissaire peut considers it to be in the public interest, the publier un rapport sur les résultats de son Commissioner may publish a report on the enquête et sur toutes recommandations faites results of his or her investigation and on any par suite de cette enquête. recommendations made as a result of the investigation. 78. The Office of the Commissioner recommends that Parliament provide in the federal OLA, as the NB OLA already does, that investigation reports prepared by the Commissioner of Official Languages of Canada may be published at the conclusion of an investigation. At present, it is only through specific reports to Parliament that the Commissioner can disclose certain elements necessary to establish the grounds for his recommendations.55 79. The authority to make the Office of the Commissioner’s investigation reports public has made the NB OLA’s implementation more consistent and effective by fostering a climate of government transparency and accountability, while also helping the public better understand their language rights. In New Brunswick, the publication of investigation reports allows the Office to highlight problematic situations in a timely manner, while respecting anonymity unless the complainant requests otherwise.56 Spell out the Commissioner’s appointment process 80. The federal OLA only provides that the Commissioner of Official Languages for Canada is appointed by the government after consultation with party leaders.57 The appointment process is not otherwise regulated. 81. However, in New Brunswick, before the Commissioner of Official Languages is appointed, a selection committee is established for the purpose of identifying

54 SNB 1987, c P-22.1; see General Regulation, NB Reg 2015-67. 55 Official Languages Act, supra, s. 68. 56 Office of the Commissioner of Official Languages for New Brunswick, 2013-2014 Annual Report, (June 2014), p. 37. 57 Official Languages Act, supra, s. 49(1).

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candidates.58 The NB OLA specifies not only the composition of this selection committee (composed of the Clerk of the Executive Council and the Clerk of the Legislative Assembly or individuals they designate, a member of the judiciary and a member of the university community), but also the steps in the Commissioner appointment process.59 82. The independence and legitimacy of the Office of the Commissioner benefit from such a regulated appointment process. The Office of the Commissioner encourages Parliament to spell out the steps for appointing the Commissioner of Official Languages for Canada, based on section 43 of the NB OLA. Extend the right to appeal to all rights guaranteed by the OLA 83. The Office of the Commissioner recommends that the right to apply for a court remedy under the federal OLA be extended to all rights under the OLA, as is the case in New Brunswick. Currently, the right to apply for a court remedy under the OLA is limited to complaints under certain sections: Recours Application for remedy 77(1) Quiconque a saisi le commissaire d’une 77(1) Any person who has made a complaint to plainte visant une obligation ou un droit prévus the Commissioner in respect of a right or duty aux articles 4 à 7 et 10 à 13 ou aux parties IV, under sections 4 to 7, sections 10 to 13 or Part V, ou VII, ou fondée sur l’article 91, peut former IV, V or VII, or in respect of section 91, may un recours devant le tribunal sous le régime de apply to the Court for a remedy under this Part. la présente partie. 84. In New Brunswick, a complainant who is dissatisfied with the results of the Commissioner’s investigation or the disposition of the complaint may apply for a court remedy, regardless of the rights or sections on which the complaint was based.60 Clarify the primacy of the federal OLA 85. According to section 82 of the federal OLA, only certain provisions of the OLA prevail over inconsistent provisions of any other act: Primauté sur les autres lois Primacy of Parts I to V 82(1) Les dispositions des parties qui suivent 82(1) In the event of any inconsistency l’emportent sur les dispositions incompatibles between the following Parts and any other Act de toute autre loi ou de tout règlement of Parliament or regulation thereunder, the fédéraux : following Parts prevail to the extent of the inconsistency: a) partie I (Débats et travaux parlementaires); (a) Part I (Proceedings of Parliament); b) partie II (Actes législatifs et autres) ; (b) Part II (Legislative and other Instruments); c) partie III (Administration de la justice) ; (c) Part III (Administration of Justice); d) partie IV (Communications avec le public (d) Part IV (Communications with and et prestation des services) ; Services to the Public); and e) partie V (Langue de travail). (e) Part V (Language of Work).

58 NB OLA, supra, s. 43(2.1). 59 NB OLA, supra, ss. 43(2.1) to (2.4). 60 NB OLA, supra, s. 43(18).

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86. The Office of the Commissioner encourages Parliament to consider amending the federal OLA to ensure that the entire OLA takes precedence over other acts. The quasi-constitutional status of the federal OLA has been recognized by the Canadian courts, as it is “an extension of the rights and guarantees recognized in the Charter.”61 87. Parliament could draw from the NB OLA, which unequivocally states that it takes precedence in the event of a conflict with any other legislation: 3(1) Toute loi ou ses règlements d’application, 3(1) No act, or regulation under it, other than autre que la présente loi, ne peuvent être this Act, shall be interpreted so as to repeal, interprétés de manière à supprimer, restreindre limit or contravene a provision of this Act and, ou enfreindre une disposition de la présente loi in case of conflict, this Act prevails. et, en cas de conflit, la présente loi l’emporte. c) Learn from the shortcomings of the New Brunswick regime: clarify the role of the Translation Bureau 88. Learning from New Brunswick’s experience with official languages also means learning from the shortcomings of its legislative regime. Like the New Brunswick Translation Bureau, the federal Translation Bureau provides government institutions with the translation and interpretation services necessary for official bilingualism. However, at present, there is no mention of these services in the federal or NB OLA; their roles are not regulated. 89. The Office of the Commissioner recommends that the federal OLA define the role of the Translation Bureau and allow all organizations subject to the OLA to use its services. The New Brunswick experience shows that, without such legislative enhancement, the Translation Bureau’s mandate and revenues can erode.62 Strengthening and expanding the role of the Translation Bureau in the federal OLA would ensure the viability and effectiveness of this institution, which is so fundamental to ensuring quality government communications in both official languages. As the Office of the Commissioner has already pointed out, the government’s constitutional obligations with respect to official languages are such that it cannot rely solely on the private sector to provide translation services.63 There is a need to strengthen the role of the Translation Bureau through a legislative amendment to the federal OLA.

61 Canada (Attorney General) v. Viola, [1991] 1 FC 373, p. 386; Lavigne v. Canada (Commissioner of Official Languages), 2002 RCS 53 at para. 23. 62 See Office of the Commissioner of Official Languages for New Brunswick, 2015-2016 Annual Report (June 2016), p. 37 [Office of the Commissioner, 2015-2016 Annual Report]. For the federal Translation Bureau, see generally: Standing Committee on Official Languages, Study of the Translation Bureau, 42nd Parl., 1st sess., 2016 (Chair: Hon. Denis Paradis). 63 See Office of the Commissioner, 2015-2016 Annual Report, supra, pp. 37-38.

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