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A Matter of Respect and Safety

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A Matter of Respect and Safety A MATTER OF RESPECT AND SAFETY: THE IMPACT OF EMERGENCY SITUATIONS ON OFFICIAL LANGUAGES OCTOBER 2020 www.officiallanguages.gc.ca ABBREVIATED VERSIONS USED IN THE REPORT In this report, the following abbreviated versions are used for ease of reference: • “Commissioner” for Commissioner of Official Languages • “the Act” for the Official Languages Act • “federal institution” for a federal institution or organization that is subject to the Official Languages Act To reach the Office of the Commissioner of Official Languages or to obtain a copy in an alternative format, dial toll-free 1-877-996-6368. www.officiallanguages.gc.ca © Minister of Public Services and Procurement and Accessibility 2020 Cat. No.: SF31-147/2020E-PDF ISBN: 978-0-660-36448-3 TABLE OF CONTENTS COMMISSIONER’S MESSAGE .................................................................................................................................................I CHAPTER 1: INTRODUCTION ................................................................................................................................................ 1 Objective .......................................................................................................................................................................... 1 Methodology .................................................................................................................................................................... 1 Scope ................................................................................................................................................................................ 1 CHAPTER 2: OBSERVATIONS AND CONSULTATIONS .......................................................................................................... 2 Questionnaire on official languages in emergency situations ................................................................................. 2 Summary of concerns at the provincial and territorial level .................................................................................... 4 Press conferences .........................................................................................................................................................4 Communications from government agencies ...............................................................................................................6 Alert messages ..............................................................................................................................................................7 First responders ............................................................................................................................................................8 CHAPTER 3: OVERVIEW OF OFFICIAL LANGUAGES IN EMERGENCY SITUATIONS ........................................................... 9 COVID-19 health crisis ................................................................................................................................................... 9 Previous emergencies .................................................................................................................................................. 10 CHAPTER 4: ROLE AND IMPACT OF GOVERNMENT ACTIONS ......................................................................................... 12 Review of institutional bilingualism in the federal government ............................................................................ 12 Bilingual capacity and identification of positions in federal institutions .....................................................................12 Leadership, culture and governance ...........................................................................................................................12 CHAPTER 5: GOVERNMENT COMMUNICATIONS ............................................................................................................... 14 Policies and procedures .............................................................................................................................................. 14 Tendencies that undermine the use of both official languages during emergency situations .......................... 14 CHAPTER 6: COMMISSIONER’S VISION ............................................................................................................................ 16 Self-assessment, adjustment and optimization: Integrating official languages into federal government operations ................................................................................................................................................ 17 Opportunities ................................................................................................................................................................. 18 RECOMMENDATIONS .......................................................................................................................................................... 20 ENDNOTES ........................................................................................................................................................................... 22 COMMISSIONER’S MESSAGE In the past decade, Canada has seen a number of climate, health and public safety emergencies. In addition to threatening Canadians’ health and safety and destabilizing our society, these emergencies have highlighted the fundamental importance of communicating with the public in both English and French in times of crisis. Each of these recent emergencies has revealed serious and recurring shortcomings in terms of official languages—shortcomings that can have harmful consequences and even put Canadians’ lives at risk. The health crisis triggered by the COVID-19 pandemic is no exception, and multiple incidents and infractions have been brought to my attention. In addition to reminding the heads of the federal institutions concerned of their official languages obligations when communicating with the public, I decided to take a closer look at these situations. This report is the result of an in-depth analysis of emergencies that occurred between 2010 and 2020 and provides an overview of Canadians’ official languages experiences during these types of situations. It also identifies potential solutions to improve the federal government’s compliance with its official languages obligations in its communications with Canadians. Ultimately, this report is intended to ensure that in times of crisis, both official languages are systematically treated equally and that Canadians are informed and reassured in the official language of their choice. I firmly believe that changes are needed within the federal government so that during emergencies, official languages stop being an afterthought and start being an integral part of crisis management. Beyond the Official Languages Act, it is a matter of respect and safety for all Canadians. Raymond Théberge I CHAPTER 1 INTRODUCTION Objective Methodology Over the past few decades, Canadian society has witnessed As an ombudsman, I have tools that provide added value to the emergencies that have required timely and extensive government analysis contained in this report; however, my unique perspective communications at the local, provincial, territorial and/or federal goes beyond the parameters of my ombudsman role. As part level. These crises have underscored the importance of health of my duties to protect language rights, my office investigates and safety guidelines on the rapid response of Canadians. complaints filed1 and conducts activities to measure federal To encourage large-scale mobilization, heads of communications institutions’ compliance with the Official Languages Act. We in federal institutions must consider whether they are making therefore developed a questionnaire and posted it on our website effective use of official languages and whether official languages from June 8 to 26, 2020, to gather information on the public’s are fully integrated into their operations. The answers can have experience with official languages during emergency situations. far-reaching consequences, since they go beyond the usual Through the questionnaire, we were able to consult with more sphere of language demands to include societal issues. We than 2,000 Canadians and get a better idea of the experiences need to be aware that the unequal use of official languages they had. during emergency situations can have disastrous and regrettable consequences for individuals, for English-speaking communities This report also draws on a review of relevant studies, data and in Quebec, for French-speaking communities across the country documents from a variety of sources, including health and legal and for society as a whole. experts, and on a review of media coverage, publications from community and sectoral organizations, government publications This report describes the government of Canada’s use of official and observations from many years of collaboration with various languages in emergency situations, taking into account, but not federal institutions. limited to, the specific context of the current COVID-19 pandemic in order to identify the most important findings and make recommendations. This report also highlights the risks posed by the unequal use of English and French by the various levels of Scope government to the Canadian public’s general understanding of For this analysis, we looked at emergency situations from 2010 to directives when an emergency
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