Report to / Rapport au :

 

Corporate Services and Economic Development Committee

Comité des services organisationnels et du développement économique

 

and Council / et au Conseil

 

21 May 2008 / le 21 mai 2008

 

Submitted by / Soumis par : Kent Kirkpatrick

City Manager / Directeur des services municipaux

 

Contact / Personne-ressource : Pierre Pagé, City Clerk / Greffier de la Ville

613-580-2424 ext. / poste: 22408 / Pierre.Page@.ottawa.ca

 

 

 

Ref N°: acs2008-cmr-ccb-0066

 

Ce rapport est également disponible en français.

 

SUBJECT:     REPORT ON FRENCH LANGUAGE SERVICES

 

OBJET :         RAPPORT SUR LES SERVICES EN FRANÇAIS

 

REPORT RECOMMENDATION

 

That the Corporate Services and Economic Development Committee recommend Council receive the 2007-2008 Report on French Language Services.

 

 

RECOMMANDATION DU RAPPORT

 

Que le Comité des services organisationnels et du développement économique recommande au Conseil de recevoir le rapport 2007-2008 sur les services en français.

 

 

EXECUTIVE SUMMARY

 

The present report describes services provided in French by the City of Ottawa from April 1,2007 to March 31, 2008, in accordance with section R.1.7 of the Bilingualism Policy adopted by City Council in May 2001. It also lists action the City plans to take in continuing to improve these services.

 

In 2007, the City increased the number of subsidized spaces providing child care services in French, under a catch‑up plan scheduled to continue until 2009. It is estimated that by the end of 2008 there will be 1,016 such spaces, or 13.7% of all spaces subsidized by the City.

 

Where recreational services are concerned, initiatives taken in recent years have proven to be productive: the number of recreational activities provided by the City in French increased by 22%, the number of registrations by 18%, and income from these registrations by 22%.

 

The present report also notes action taken in the past year to increase French language content at City public events.

 

The Public Health Service initiative of adapting documents translated into French was continued in 2007 and 2008. The purpose of this initiative is to make documents destined for Francophones easier to read.

 

In receiving the 2005‑2007 Report on French Language Services, City Council adopted a motion requiring that each of the five City Departments meet section R.1.6 of the Bilingualism Policy by preparing an action plan for improving French language services. These action plans will be prepared for the first time in 2008.

 

In its 2007 planning exercise, City Council ratified the City’s commitment to offering comparable services in both official languages while continuing to improve “the service culture”.

 

In accordance with its mandate, the French Language Services Division (FLSD) maintained links of co‑operation and exchange of information with the French-speaking community. It also followed up on complaints from residents and employees about French language services. In 2007, the FLSD received 36 complaints.

 

The Designation of Bilingual Positions Project is nearing completion, and on July 1, 2008 will be replaced with on‑going designation. Following a thorough consultation with all City Branches, Senior Management approved the designation of 3,968 positions, or 27.6% of all 14,361 City positions.

 

In early 2007 for the first time, the second language proficiency levels of all senior managers from level 1 to level 3 were tested. This testing was repeated in early 2008. Progress in second language proficiency is now an annual evaluation criterion for these senior managers. In 2007, as a condition of hiring, 13 of the 36 senior managers from level 1 to level 3 were required to take second language training in French.

 

Among other City employees, an average of 241 persons took second language training during each of the three sessions offered by the City in 2007. Of these employees, 92% achieved or exceeded their learning objectives, and 90% stated that they were satisfied or very satisfied with their learning experience.

 

In 2008, although the number of words to be translated decreased, the number of texts translated increased by 8%. These translated texts included 2.1 million words, the equivalent of 20,500 pages.

 

The agreement between the City and the Department of Canadian Heritage was extended in 2008 for a two‑year period ending on March 31, 2009. This agreement has made it possible to carry out a number of projects aimed at improving French language services in the National Capital Region.

 

 

RÉSUMÉ

 

Ce rapport présente un bilan de la prestation de services en français à la Ville d’Ottawa pour la période du 1er avril 2007 au 31 mars 2008, conformément aux dispositions de l’article R.1.7 de la Politique de bilinguisme, adoptée par le Conseil municipal en mai 2001. Ce rapport énumère également les mesures que la Ville se propose de prendre dans le but de continuer à améliorer ces services.

 

En 2007, la Ville a augmenté les places en garderie qu’elle subventionne et où le service est offert en français, selon un plan de rattrapage devant se poursuivre jusqu’en 2009. On estime que le nombre de places s’élèvera à 1 016 à la fin de 2008, soit 13,7 % de toutes les places subventionnées par la Ville.

 

Pour ce qui est des services récréatifs, les initiatives des dernières années portent fruit. Le nombre d’activités offertes en français par la Ville a augmenté de 22 %, alors que le nombre d’inscriptions a augmenté de 18 % et les revenus d’inscriptions de 22 %.

 

Le rapport fait aussi état de certaines mesures prises au cours de la dernière année pour augmenter le contenu en français lors des événements publics de la Ville.

 

Le projet d’adaptation de textes traduits en français au sein du service de Santé publique s’est poursuivi en 2007 et 2008. Ce projet vise à faciliter la lecture des textes destinés aux francophones.

 

En recevant le rapport de 2005-2007 sur les services en français, le Conseil municipal adoptait une motion enjoignant les cinq grands services de la Ville de donner suite à l’article R.1.6 de la Politique qui prévoit la préparation de plans de travail sectoriels sur l’amélioration des services en français. Ces plans seront préparés pour la première fois en 2008.

 

Lors de l’exercice de planification du Conseil en 2007, ce dernier a entériné l’engagement de la Ville à offrir des services comparables en français et en anglais tout en rehaussant « la culture axée sur le service ».

 

Conformément à son mandat, la Division des services en français maintient des liens de collaboration avec la communauté francophone. Elle s’occupe aussi de donner suite aux plaintes de la population et des membres du personnel concernant les services en français. La DSF a reçu 36 plaintes en 2007.

 

Le Projet de désignation des postes bilingues tire à sa fin et sera suivi, le 1er juillet 2008, de la désignation continue. Suite à une vaste consultation avec toutes les directions de la Ville, l’Équipe de direction a approuvé la désignation de 3 968 postes, ce qui représente 27,6 % des quelques 14 361 postes de la Ville.

 

C’est en 2007 que les cadres des niveaux 1 à 3 ont été testés pour la première fois afin d’établir leur niveau de compétence linguistique en langue seconde. Cet exercice s’est répété au début de 2008 et les progrès en langue seconde font maintenant partie des critères d’évaluation annuelle de ces cadres. En 2007, 13 des 36 cadres occupant des postes des niveaux 1 à 3 devaient, selon les conditions de leur embauche, suivre de la formation en français langue seconde.

 

Pour ce qui est des autres membres du personnel, une moyenne de 241 personnes a participé à chacune des trois sessions de formation en langue seconde offerte par la Ville. De ceux-ci, 92 % ont atteint ou excédé leurs objectifs d’apprentissage et 90 % se sont dits satisfaits ou très satisfaits de la formation reçue.

 

Le nombre de textes à traduire a augmenté de 8 % en 2008, bien que le nombre de mots à traduire ait diminué. Les textes traduits comportent 2,1 M de mots, soit l’équivalent d’environ 20 500 pages de textes.

 

L’entente liant le ministère du Patrimoine canadien et la Ville d’Ottawa a été renouvelée en 2008 pour une période de deux ans se terminant le 31 mars 2009. Cette entente permet la poursuite de plusieurs initiatives visant l’amélioration des services en français dans la capitale canadienne.

 

 

BACKGROUND

 

Section R.1.7 of the City of Ottawa's Bilingualism Policy requires the City to “submit progress reports on the implementation of the bilingualism policy”. The present report takes stock of the French language services provided by the City from April 1, 2007 to March 31, 2008. It also proposes action to be taken in order to continue to improve these services.

 

It should be noted that, in addition to the activities described in the present report, numerous activities are carried out on a daily basis by City employees in order to provide services in English and in French. Examples include the City’s Client Service Centres, communications to residents and employees, Internet site, recreational activities, the French Language Public Health Committee, and the French Language Services Advisory Committee, to name only those few.

 

On May 9, 2001, the newly‑merged City adopted a policy to govern the offer of services in English and in French. [1] Since that time, three reports have been presented to City Council on the development of French language services.


The first report (2001‑2002) set a number of standards for French language services, which were reiterated in May 2003 in the French Language Services Procedure Manual. The 2003‑2004 report noted progress in translation and second language training. The most recent report (2005‑2007) provided the latest information on the designation of positions and noted progress in certain areas, particularly child care services and recreational activities.

 

In adopting the Bilingualism Policy, the City created the FLSD, mandated to advise City government on implementing the Bilingualism Policy and improving French language services. The FLSD acts as a centre of expertise and information for City government, elected representatives and residents on matters of linguistic equity; it is also responsible for resolving complaints from residents and employees about French language services. As well, for a number of years it has been responsible for the Translation Service; in this capacity, it manages the centralized budgets for translation and simultaneous interpretation.

 

The FLSD reports to the City Clerk and is made up of a manager, a co‑ordinator and a project officer. The Translation Service, in addition to the chief who is herself an experienced translator and reviser, has two translator-revisers and four clerks.

 

As well, the Bilingualism Policy provides for the creation of the French Language Services Advisory Committee (FLSAC), mandated to advise elected representatives and senior management on language matters and ways of improving French language services. The FLSAC is made up of equal numbers of French‑speaking and English‑speaking volunteers.

 

 

DISCUSSION

 

Highlights of implementing the Bilingualism Policy

 

From April 2007 to March 2008, a range of action was taken to promote implementation of the Bilingualism Policy.

 

Information and Consultation Services

In accordance with its mandate, the FLSD sought to respond to requests for information from the French‑speaking community, the general public, other levels of government and researchers. It also made itself available to the Mayor’s Office, City Councillors, and the various City Services.

 

Because of its unique expertise, the FLSD is also able to express opinions and provide advice to City government on matters as varied as overhauling the framework for community funding, the process of public consultation, language training for senior managers, and appropriate standards for public events. For example, in February 2008, in co‑operation with the Corporate Communications Service and the Information Technology Service, the FLSD took steps to remind bilingual employees to ensure that their voice mail messages and automatic e‑mail reception messages are bilingual.

Child care services in French

2007 was the first year of a three‑year catch‑up plan on child care services in French. An additional allocation of $765,000 in the 2007 City budget made it possible that year to create 104 new subsidized spaces providing child care services in French. The same amount was approved in 2008 and should make it possible to create 98 such spaces this year. These results were made possible by the efforts of the Community and Protective Services staff, under the leadership of the Deputy City Manager. Credit is also due to the cooperation of the two French‑Language school boards.

 

The catch-up plan’s objective is to ensure that by January 1, 2010 Francophones have access to an equivalent number of subsidized spaces providing child care services in French, as well as a proportional share of City budgets for child care services.

 

Number of City Subsidized Child Care Spaces

2005 to 2008

 

 

Total Number of City Subsidized Spaces

Subsidized Spaces Providing Service in French

%

2005

7,202

735

10.2%

2006

7,325

814

11.1%

2007

7,332

918

12.5%

2008 (estimated)

7,395

1,016

13.7%

 

In addition to the new spaces created by the allocation of additional funding in 2007 and 2008, some reorganization measures made it possible to increase the number of subsidized spaces providing child care in French. It is estimated that there will be 1,016 such spaces by the end of 2008, or 13.7% of all spaces subsidized by the City.

 

Parks and Recreation

At the end of 2006, the City’s Parks and Recreation Branch took the initiative of creating a team responsible for co‑ordinating and promoting recreational services in French. The team’s objective is to enhance services and increase their promotion. One initial result of this initiative has been the publication entitled Mon guide francophone des loisirs, of which the second edition was distributed starting in August 2007 and the third edition in March 2008. This publication describes activities provided by the City and its partners in French.

 

This initiative has already proven to be productive: from 2006 to 2007, the number of activities provided by the City in French increased by 22.5%. The same is true of registrations, which increased from 3,594 in 2006 to 4,243 in 2007.[2]

 

Increases in Recreational Activities in French

 

 

2006

2007

Increase

Number of activities in French

743

910

22.5%

Number of registrations for activities in French

3,594

4,243

18.0%

Income from registrations for activities in French

$304,227

$370,792

21.9%

 

The Parks and Recreation Branch is in the process of preparing a master plan. Since Francophones have been identified as a priority group, the process should allow to define service requirements for this group.

 

Bilingualism at Public Events

In 2006 and 2007, the City a received a certain number of complaints from residents and employees about the lack of attention paid to bilingualism at public events organized by the City (including awards ceremonies, media scrums, receptions, employee meetings and theme days). Over the past year, a number of initiatives were taken in order to resolve this situation, including a memorandum from the Deputy City Manager, intervention by the City Clerk and the FLSD, and co‑operation by the Corporate Communications Service. The FLSD is closely monitoring developments in this regard since progress is still limited.

 

Hiring procedures and second language requirements for senior managers

The 2007‑2008 year also witnessed various initiatives designed to clarify internal and external hiring procedures and second language requirements for senior managers. In early 2007 for the first time, the second language proficiency levels of all senior managers from level 1 to level 3 occupying positions designated bilingual under the Bilingualism Policy were tested. This testing was repeated in early 2008. Progress in second language proficiency is now an annual evaluation criterion for these senior managers, and may affect their promotions and pay raises.

 

Public Health Ottawa

An initiative to adapt documents published by the Public Health Service was initiated in early 2007, and continued throughout that year and into the first few months of 2008. This initiative’s objective is to adapt in simple language—not simply to translate—leaflets, posters and other documents destined for the general public. In the opinion of the French‑speaking employees of the Public Health Service, this project has been a great success, in part due to the support of higher management. As well, this model could be transposed for use in other City services.

 

City departments’ action plans

In adopting the 2005‑2007 Report on French Language Services, the Corporate Services and Economic Development Committee also adopted the following motion, which was ratified by City Council on September 12, 2007:

“That all municipal departments prepare an annual action plan for the delivery of French language services, supported by evaluation and control measures.”

 

This motion by City Council requires each of the five City Departments to follow up on section R.1.6 of the Bilingualism Policy by preparing an action plan. As is noted below, these action plans will be prepared for the first time in 2008 following completion of the Designation of Bilingual Positions Project, and will be implemented on January 1, 2009 after approval by the FLSAC, the City Clerk and City Council.

 

Planning for 2007‑2010

Starting in May 2007, City Council undertook a far‑reaching planning exercise; the resulting priorities were approved in August 2007. A number of these objectives have to do with service delivery; an amendment adopted by City Council emphasizes the City’s commitment to offering comparable services in both official languages:

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

 

Other highlights

The following activities in 2007-2008 are also noteworthy since they made the City’s Bilingualism Policy better known by City government and residents:

·          the FLSD maintained links of co‑operation and exchange of information with the French-speaking community, particularly through community networks and organizations;

·          the FLSD supported the FLSAC in working proactively with elected representatives and City government in order to improve services provided by the City in French;

·          the FLSD made repeated interventions with managers to explain and promote the Bilingualism Policy;

·          the Designation of Bilingual Positions Project, described below, is itself a means of making the Bilingualism Policy and its purposes and requirements known.

 

Proposed action for 2008‑2009

·          In response to the September 12, 2007 City Council motion: that each of the five City Divisions prepare a plan to increase and improve French language services, in accordance with section R.1.6 of the Bilingualism Policy; that these plans be approved by City Council and contain accountability and evaluation measures; that these plans be set up by January 1, 2009 and be evaluated first in early 2010; and that these plans revise upward the qualitative and quantitative objectives proposed by certain City entities;

·          That the FLSD, with the assistance of the appropriate services, review the May 2003 French Language Services Procedure Manual so that it becomes a guide to City services in both official languages; and that this guide be more user‑friendly and provide more incentive;

·          That the FLSD carry out the activities agreed under the contribution agreement with the Department of Canadian Heritage;

·          That Employee Services assume responsibility for the on‑going designation of bilingual positions (see the section on the Designation of Bilingual Positions Project below);

·          That the equity threshold for child care and recreational services be more precisely defined.

Liaison with the community

 

In order to continue to make the needs and expectations of the French-speaking community better known, FLSD employees regularly take part in French‑speaking community networks and events. For example, the FLSD maintains links of co‑operation and exchange of information with the Ottawa chapter of the Association canadienne‑française de l’Ontario (ACFO), the Assemblée de la francophonie de l’Ontario (AFO), the Association française des municipalités de l’Ontario (AFMO), the Centre for Research on French Canadian Culture (CRFCC), the Community Information Centre (CIC), the Centre Espoir Sophie, the Centre multiservices francophone de l’Ouest (CMFO), the Centre psychosocial d’Ottawa, the Coalition pour prévenir l’itinérance chez les francophones d’Ottawa (CPIFO), the Comité de travail sur les services de garde en français, the Conseil des écoles catholiques de langue française du Centre-Est (CECLFCE), the Conseil des écoles publiques de l’Est de l’Ontario (CEPEO), the Fédération des aî­nés et des re­trai­tés fran­co­pho­nes de l’Ontario (FAFO) in Ottawa, the Monuments de la francophonie, the Vanier Museopark, French language recreational organizations, ethnocultural community organizations, Parks and Recreation Ontario (PRO) High Five Program; the Regroupment des gens d’affaires (RGA) in the National Capital Region, the Société franco‑ontarienne d’histoire et de généalogie (SFOHG), and the historical show L’Écho d’un peuple.

 

The FLSAC regularly welcomes delegations from the French‑speaking community at its meetings, thus maintaining contacts with community leaders. The FLSD supports the work of the FLSAC, particularly by carrying out research on its behalf.

 

In combination and over the years, these initiatives have had the effect of promoting richer and more sustained dialogue between Ottawa’s French‑speaking community and various entities of City government, including elected representatives and senior management.

 

Proposed action for 2008‑2009

·          Seek to maintain and enhance dialogue and co‑operation between the French-speaking community and certain crucial City services such as services for vulnerable tenants and homeless persons, public health services, and services for ethnic and cultural communities;

·          Encourage the French-speaking community and its institutions (for example, the AFMO and the University of Ottawa) to interact directly in French with more City services, and vice versa.

 

Management of complaints

 

The FLSD is mandated to receive and investigate complaints from residents and employees about French language services. Over the past year, some of these complaints also received media coverage, for example, the evacuation plan of a child care centre, public events, and services aboard buses.

In investigating a complaint, the FLSD seeks to ensure that the situation is resolved, while striving to prevent it from recurring. To this end, it proposes specific solutions and, if necessary, systemic improvements.

 

In 2007, the FLSD received 36 complaints, in comparison with 32 in 2005 and 30 in 2006. The complaints received in 2007 have to do with a variety of matters and do not indicate any particular trends.

 

Proposed action for 2008‑2009

·          Promote the mechanism for resolving complaints about French language services with the French‑speaking community and employees;

·          Continue to seek to prevent problematic situations from recurring by proposing systemic improvements.

 

Designation of bilingual positions

 

Sections 4 and 6 of the Bilingualism Policy require the City to designate a certain number of City positions that must be occupied by persons who have acquired or are acquiring a certain level of second language proficiency. The purpose of these provisions is to allow the City to provide services in both official languages.[3]

 

In the summer of 2004, the City launched the Designation of Bilingual Positions Project in order to review, on the basis of clearly defined criteria, the permanent City positions and designate a certain number of them bilingual. The Project was carried out in stages; all of them ensured that the City Council motion that no employees would lose employment because of designation was respected.

 

The FLSD first asked each branch to propose the designation of certain positions using a detailed template, thus putting to use each service’s knowledge of its own operations and client groups. The proposals from the branches were then reviewed by an expert consultant on the delivery of French language services in a minority setting. The consultant was also asked to define levels of language proficiency for all positions designated bilingual since the City does not require the same level of second language proficiency from information officers, ambulance drivers, building inspectors and street maintenance workers.

 

The consultant’s work was reviewed by the FLSD team, which enriched the content of this work by creating, in co‑operation with Employee Services, two types of positions designated bilingual:

 

·          a designated position requires a specific level of proficiency in English or French as a second language; successful candidates who do not meet the second language proficiency requirements at the time of hire will need to register for second language training and make progress;

·          a Day One Ready designated position requires a specific and immediate level of proficiency in English or French as a second language, at time of hire; this designation applies mainly to positions in front‑line services provided to residents and employees as well as health, security, emergency and information services.

 

The FLSD recommendations were then returned to each division for final validation. Following a few adjustments, on March 17, 2008 the results of the Designation of Bilingual Positions Project were presented to the Executive Management Committee, which ratified them and approved the last stages of the Project.

 

The following table shows the results of the Designation of Bilingual Positions Project for employees of all City branches. It should be noted that most of the validation of recommendations took place in 2007 and was therefore based on staffing numbers at that time.

 

Designation of Bilingual Positions Project

Municipal Service/Division

Total Positions

Regular Designation

% of Regular Designations

Day One Ready Designation

% of Day One Ready

Designations

Total of Designated Positions

Total% of Designated Positions

Level 1 to 3 Mgt Positions

35

35

100%

0

0

35

100%

Office of the Auditor Gen.

7

3

42%

0

0%

3

42%
City Manager’s Office

City Manager’s Office

11

6

55%

0

0%

6

55%

City Treasurer/Finan. Serv.

492

9

2%

17

3%

26

5%

Legal Services

52

10

19%

5

10%

15

29%

City Clerk

160

66

41%

29

18%

95

59%
Business Transformation Services

DCM’s Office

15

3

20%

0

0%

3

20%

Corporate Communications

14

9

64%

2

14%

11

78%

Corp. Planning & Perf. Reporting

8

3

38%

0

0%

3

38%

Real Property Asset Mgt

848

47

5%

3

0%

50

5%

Info. Technology Services

383

12

3%

0

0%

12

3%

Client Serv. & Public Info.

140

23

16%

83

59%

106

76%

Employee Services

180

34

19%

2

1%

36

20%

 

Planning, Transit and the Environment

 

DCM’s Office

13

6

46%

0

0%

6

46%

Building Code Services

158

32

20%

0

0%

32

20%

Planning
Branch

116

38

33%

0

0%

38

33%

Economic & Environ. Sustainability

90

16

18%

0

0%

16

18%

Transit Services

1,877

59

3%

475

25%

534

25%

 

Community & Protective Services

 

DCM’s Office

28

6

21%

0

0%

13

21%

Paramedics

490

40

8%

140

28%

180

36%

By-Law Services

158

8

5%

46

29%

54

34%

Office of Emergency Mgt

5

3

60%

0

0%

3

60%

Fire Services

880

7

1%

211

24%

218

25%

Employment & Financial Assistance

753

25

3%

339

45%

364

48%

Cult. Serv. & Community Funding

132

32

24%

30

23%

62

47%

Housing

83

40

48%

0

0%

40

48%

Long Term Care

891

29

3%

168

18%

197

22%

Parks & Recreation

2,770

83

3%

1,414

51%

1,497

54%

Public Health

533

66

10%

163

28%

229

39%

 

 

Public Works & Services

 

DCM’s Office

26

2

8%

0

0%

2

8%

Fleet Services

536

1

0%

0

0%

1

0%

Surface Operations

1,429

12

1%

0

0%

12

1%

Traffic and Parking

292

23

8%

3

1%

26

9%

Utility Services

495

24

6%

13

2%

37

7%

Infrastructure Services

261

13

5%

0

0%

13

5%

Total

14,361

825

5.7%

3,143

21.9%

3,968

27.6%

 

Of the more than 14,000 positions reviewed during the Designation of Bilingual Positions Project, managers approved, in consultation with the City Clerk and the FLSD, the designation of 3,968 positions or a little over 27% of all positions. Of the positions designated bilingual, approximately 79% are Day One Ready designations. As well, depending on the number of employees and the type of service provided, there are marked variations from one branch to another in the percentage of positions designated bilingual (from 0% to 70%).

 

During the validation of recommendations for designation, managers in the various branches were also asked to provide a linguistic profile of incumbents in these positions, and to assess whether these employees needed second language training. This assessment is provided below.

 

Linguistic Profile of Employees

Occupying Positions Designated Bilingual

 

 

Regular Designations

Day One Ready Designations

Total

 

The manager considers that the employee meets the language requirements of the designated position

54%

95%

85%

 

The manager recommends that the employee’s second language proficiency be assessed.

31%

1%

9%

 

The manager recommends that the employee take second language training.

3%

0%

1%

 

The employee is registered for second language training.

8%

3%

4%

 

The employee is exempt from second language training (for example, is eligible to retire).

3%

0%

1%

 

Total

100%

100%

100%

 

 

This table shows that 85% of all designated positions are already occupied by employees considered bilingual by their immediate supervisors. This proportion is 95% among Day One Ready designated positions. These figures clearly demonstrate that the main effect of the Designation of Bilingual Positions Project has been to make official the practices already in effect at the City, thus ensuring that all employees can continue to pursue productive careers with the City in the area of their choice.

 

While the Designation of Bilingual Positions Project was being carried out, a committee made up of the FLSD, Employee Services and the Corporate Communications Service was responsible for updating and writing policies and procedures on subjects including staffing and second language training. These policies and procedures will govern the on‑going designation process once the Project has been completed. Once the process shifts to what is referred to as “on‑going designation”, managers will continue to be responsible for hiring employees and, with the assistance of staffing consultants, will continue to designate bilingual positions so as to ensure that services are offered in both official languages.

The FLSD will continue to be involved in this process; in particular, it must be consulted when new positions are created or when a service is reorganized.

 

It is anticipated that the Designation of Bilingual Positions Project will be completed on July 1, 2008, at which time on‑going designation will begin.

 

The City plans to review all designated positions every five years, in order to take into consideration changes in the City’s workforce and any restructurings.

 

Proposed action for 2008‑2009

·          Finalize the entry of data on position designation in City data bases;

·          Set up ways of updating data on position designation, particularly when new positions are created;

·          Set up ways of updating data on progress made by employees registered for second language training;

·          Ensure that managers can readily produce reports on position designation;

·          Offer to Employee Services staffing consultants training on the new position designation policies and procedures;

·          Encourage these staffing officers to be proactive about position designation in advising hiring managers;

·          Organize a last round of briefing and consultation with the unions;

·          Complete the Designation of Bilingual Positions Project by July 1, 2008;

·          On that date, begin on‑going designation, and transfer lead responsibility for position designation from the FLSD to Employee Services;

·          Ask managers to organize meetings with individual employees whose positions are designated bilingual, in order to respond to employees’ questions and, if necessary, encourage them to register for second language training;

·          Have City departments prepare action plans for improving French language services, taking into account factors such as the results of the Designation of Bilingual Positions Project and improvements in procedures for hiring bilingual employees; implement these plans on January 1, 2009.

 

Second language training

 

Second language training offered to City employees focuses on the acquisition of four language skills: oral understanding (listening), reading, oral expression (speaking) and writing. That said, at all levels of training, priority is given to understanding and oral expression. As well, all learning is linked to the situations and terminology of the City’s work.

 

Senior managers

Under the Bilingualism Policy, the approximately 35 senior manager positions from level 1 to level 3 must be occupied by persons who have acquired or are acquiring a certain level of proficiency in both official languages. In 2006, the City reviewed its methods of tracking these senior managers’ participation and progress in second language training. In fact, for the first time, second language training was made an annual evaluation criterion for these senior managers.

 

The City offers persons occupying these positions a number of second language training options: private or semi‑private courses; group sessions; intensive full‑time one‑ or two‑week programs; or immersion programs.

 

In early 2007 for the first time, the second language proficiency levels of these senior managers were tested. These tests showed that, of the City’s 34 senior managers:

·          15 (44%) meet or exceed the linguistic requirements of their position;

·          4 (12%) are exempt from second language training because they are less than three years from retirement or are occupying their positions on an acting basis;

·          15 (44%) are required to take second language training.

 

Among this last group, it should be noted that:

·          12 (80%) are at an intermediate or advanced level;

·          only 6 (40%) took available second language training in 2006 and the first three months of 2007.

 

A second series of annual tests was carried out in late 2007 and early 2008. Of the 36 senior manager positions from level 1 to level 3, three were vacant as at December 31, 2007. Among the 33 incumbents:

·          12 (36%) meet the linguistic requirements of their positions (including the four senior managers whose first language is French);

·          8 (24%) are exempt from taking second language training for various reasons;

·          13 (39%) are required to take second language training in 2008.

 

Among this last group, second language proficiency levels achieved in 2007 were as follows:

·          2 (15%) have not yet been tested;

·          4 (31%) are at the beginner level;

·          2 (15%) achieved various levels of proficiency in different skills;

·          2 (15%) are at the intermediate level;

·          3 (23%) are at the advanced level.

 

The City’s Professional Training Centre recommends that senior managers devote the following time to second language training:

·          at least two hours per week;

·          between four and six hours per week if they wish to make satisfactory progress.

 

Other employees

Second language training is offered not only to senior managers but also to other City employees, mainly in group sessions of four hours per week. The City’s Professional Training Centre offers second language training at 20 different levels, from beginner to advanced. Each year, the City offers three 12‑week sessions to each of approximately 30 groups at various levels.[4]

As well, the City offers its employees not only group sessions but also the possibility of registering for Self‑Directed Learning (SDL). SDL participants meet with a teacher for 10 hours over a 12‑week period, and agree to spend an additional three hours per week learning their second language.

 

The following table shows that a little over 95% of participants are registered in second language training courses in French.

 

Registrations in Second Language Training in 2007

(Private Lessons, Group Sessions, and SDL)

 

Session

French as a Second Language

English as a Second Language

Total

January to March 2007

222

9

231

April to June 2007

200

12

212

September to December 2007

268

12

280

Total 2007

690

33

723

 

During the three sessions offered in 2007, an average of 241 persons took second language training, a slight decrease from the previous year.[5]

 

Average Number of Participants, Second Language Training Group Sessions, Each of Three Group Sessions Per Year

 

Year

Number of Participants

Per Year

2003

293

2004

280

2005

265

2006

263

2007

241

 

The success rate in second language training group sessions is very high, averaging 92%.

 

Success Rate, Second Language Training Group Sessions

 

Session

% of Successful Participants

January to March 2007

90%

April to June 2007

95%

September to December 2007

92%

Total 2007

92%

 

Given this high success rate, it is not surprising that 90% of second language training participants stated that they were “satisfied” or “very satisfied” with their learning experience.

 

Satisfaction Rate, Second Language Training Group Sessions in 2007

 

Session

“Satisfied” or “Very Satisfied” Participants

January to March 2007

93%

April to June 2007

89%

September to December 2007

87%

Total 2007

90%

 

Other initiatives

The City’s Professional Training Centre continually seeks to improve its second language training programs in order to meet employees’ needs and encourage them to continue to progress.

 

Participants in group classes benefited from one‑hour pronunciation workshops held twice each session. A pronunciation specialist delivered these workshops. Participants learned how to use the phonetic alphabet and benefited from both group and individual activities. Skills acquired during these workshops were reinforced throughout the session by the regular classroom teacher.

 

The City’s Professional Training Centre also offers language training to work teams. This approach provides these teams with training methods and course content adapted to their specific needs and work areas. Training is offered at the individual teams’ worksites and scheduled to meet their operating requirements.[6]

 

Proposed action for 2008‑2009

·          Anticipate increased demand for second language training in French and second language proficiency testing of employees whose positions are designated bilingual;[7]

·          As an on-going result of the position designation process, prepare new training programs in response to emerging needs (for example, training for bus drivers);

·          Ensure that senior managers participate much more regularly in second language training programs, thus setting an example for other employees;

·          Explore new second language training methods accessible from employees’ work stations.

 

Professional training in French

 

In addition to offering second language training to its employees, through its Professional Training Centre, the City also offers professional training workshops and sessions in French. These sessions, on various subjects, are offered in order to encourage employees to make use of their knowledge of French and emphasize the importance the City attaches to that language.

 

As well, the City offers professional training sessions in French to work teams, in response to their specific needs.

 

Professional Training Sessions in French

 

 

2003

2004

2005

2006

2007

Total

Professional training sessions offered in French

5

12

9

15

16

57

Number of participants

30

76

40

69

82

297

 

Proposed action for 2008‑2009

·          Promote this service even more actively, particularly by indicating more clearly the language in which courses are offered, for example in City Briefs;

·          Conduct a survey on what motivates Francophones to register for these sessions and what makes them reluctant to do so;

·          Conduct a survey on the needs of Francophones for professional training;

·          Encourage more requests, particularly for training sessions for work teams;

·          Maintain an active offer of these sessions in order to encourage potential client loyalty.

 

Translation and simultaneous interpretation

 

The quality of documents translated by the City continues to improve each year. This situation can be explained in part by the centralization of all translation requests through the FLSD. This approach makes it possible to do a better job of monitoring writing quality, particularly by means of more frequent revision. As well, the number of Translation Service employees is more appropriate now that one translator‑reviser position has finally been staffed and a fourth clerk position created.

 

An increasing number of City employees are including the time required for documents to be translated in their scheduling thus allowing better planning by the Translation Service and also reducing translation costs, which are otherwise billed at the urgent rate. These City employees are increasingly aware of the requirements of the Bilingualism Policy and of which documents must be translated.

 

Translation Service

 

Year

Documents Translated Internally

Documents Translated by Freelance Translators

Total Translation Requests

Number of Words Translated

2005

—

—

12,056

—

2006

5,044

8,066

13,110

9,483,813

2007

5,06

9,100

14,206

7,190,352

 

From 2006 to 2007, the number of documents to be translated increased by over 8%. At an average of 350 words per page, the City translated some 20,500 pages during the year.

 

In 2007, the City started to set up and run a translation memory software application. As its name indicates, this software application can store large quantities of documents and terminology in both official languages, and can search this memory and suggest to the translator an expression, a sentence or even an entire translated text, thus speeding up the translation process without jeopardizing writing quality.

 

That said, there is still one less bright spot in the picture: a second software application for facilitating the work of the Translation Service has not yet been introduced. The need for this software application, designed to manage and route the flow of translation requests and to produce more complete statistical reports, has repeatedly been demonstrated in the past few years.

 

During the period covered by the present report, the FLSD sought to improve the infrastructure required for the Language Helpline telephone service, available at extension 21000. The Helpline service allows City employees to consult a translator about a language difficulty or to obtain a brief translation.

 

Demand for the Language Helpline decreased by 40% from 2006 to 2007, when the FLSD was obliged to stop promoting this service because of a lack of human resources. It is anticipated that demand for this service will increase in 2008, thanks to the technological improvements and the fact that the translation team is now fully staffed.

 

Language Helpline

 

Year

Number of Requests Received

Average Number of Requests Received, Per Working Day

2006

2,303

9.5

2007

1,443

5.9

First three months of 2008

398

4.9

 

With regard to simultaneous interpretation, this service continues to be provided at various City events, meetings and consultations. Here again, provision of this service shows the importance the City attaches to equality between the two official language groups.

 

Proposed action for 2008‑2009

·          In 2008, review the list of available freelance translators who have been approved to do work for the City;

·          Continue to store high‑quality documents in the translation memory software application;

·          Have the translation request routing software application up and running, so as to meet increased demand without jeopardizing writing quality;

 

·          Continue to make translations a tool for communication, particularly by adapting more translated documents to specific client groups;

·          Make even better use of simultaneous interpretation, in order to facilitate dialogue between the French-speaking community and the City;

·          Promote the Language Helpline service.

 

Management of contribution agreement with Department of Canadian Heritage

 

Since 2001, a co‑operative agreement designed to improve French language services has been in effect between the City and the Department of Canadian Heritage. Under this agreement, managed by the FLSD, the parties each agree to invest in the delivery of French language services. Federal funding to the City has made it possible to carry out a number of projects in 2007-2008. A brief summary of these projects follows; further details can be found in the City’s annual reports to Canadian Heritage:

·          On March 19, 2008, the second edition of the Mayor’s Francophone Rendez-vous event was held, bringing together over 200 French‑speaking community leaders at City Hall;

·          The Raconte‑moi Ottawa Internet site, managed by the Vanier Museopark, presents documents on the contributions of Francophones to the history of Ottawa;

·          The CPIFO brings together a number of organizations working with vulnerable tenants and homeless persons; in 2007, this coalition created an Internet site providing information on French language services for these client groups;

·          The Public Health Service hired a writer responsible for adapting in simple language documents translated into French;

·          The City helped create a data base of municipal documents available in both official languages; this project is being carried out under the aegis of the AFMO;

·          The City commissioned a study on child care, in response to the specific needs of French‑speaking ethnic and cultural communities;

·          The Business Assistance Project encourages businesses to provide services in both official languages; this project was revived in October 2006 thanks to a partnership between the RGA and the FLSD;

·          Part‑time reviser and terminologist positions were created in the Translation Service; the reviser controls the quality of the texts to be stored in the translation memory software application while the terminologist verifies proposed terms to be stored in the terminology bank;

·          The FLSD is developing a visual identity that will emphasize the presence and the importance of French language services at the City;

·          A number of actions are planned to promote and improve recreational services provided by the City and its partners in French;

·          In co‑operation with a number of partners, the City will help prepare a directory of French‑language resources in Ottawa;

·          The FLSD created a partnership with the Ottawa Pubic Library that will make possible a pilot project to improve programming for children in French;

·          In 2008, the FLSD will endeavour to help organize a symposium on bilingual cities.

Following the City’s presentation of a two‑year Business Plan, in early 2008 a new agreement was initiated, covering the period from April 1, 2007 to 31 March 2009. The federal government will make a contribution in the amount of $430,000 to the City, for each year of this agreement.

 

The Department of Canadian Heritage considers the City a model of delivery for municipal services in both official languages and therefore intends to continue its co‑operation with Canada’s capital.

 

Proposed action for 2008‑2009

·          Initiate new projects in 2008‑2009, while continuing projects carried out in 2007‑2008;

·          Prepare a new agreement to begin on April 1, 2009, possibly including co‑operation with the Ontario government.

 

 

FINANCIAL IMPLICATIONS

 

There are no financial implications.

 

 

DISPOSITION

 

Following approval of the present report by the Corporate Services and Economic Development Committee and City Council, the FLSD will take appropriate action to implement, jointly with City government, the programs and projects proposed above.

 

            RAPPORT SUR LES SERVICES EN FRANÇAIS POUR 2007-2008

REPORT ON FRENCH LANGUAGE SERVICES FOR 2007-2008

acs2008-cmr-ccb-0066                               city-wide / À l’Échelle de la ville

 

Mr. Pierre Pagé, City Clerk, introduced this item, noting it was brought forward per a previous direction of City Council and that it essentially outlined the activities of the French Language Services Division on a yearly basis.  He indicated this year’s report contained details with respect to the designation of bilingual positions, pursuant to the Council-approved policy. 

 

Responding to a question from Councillor El-Chantiry with respect to the process used to arrive at the percentage of designated positions identified in the report, Mr. Pagé explained that questionnaires were sent to all managers within the corporation in which they were asked to identify any positions serving the public and to quantify the level of interaction between the employees in these positions and the public.  The responses to these questionnaires were then analysed by a consultant who determined the level of bilingualism required in order to serve the public.  Mr. Pagé then discussed the fact that the policy allowed for varying levels of proficiency, depending on the nature of the interaction required between a specific position and the public.  

 

In response to a further question from the Councillor, Mr. Pagé indicated this policy was not unlike the policy that was in place at the former City of Ottawa in that it was very functional.  As an example, he referenced the Client Service Centres in Kanata or Nepean and submitted that, if there were 8 employees in these centres, 1 or 2 of them may need to be bilingual in order to serve the population in these areas.  On the other hand, he submitted that the Client Service Centres in the eastern parts of the City would require a larger proportion of bilingual employees because the francophone population was larger in these areas. 

 

With respect to the potential vulnerability to court challenges, Mr. Pagé reminded Committee that the policy had been challenged before the courts and the City had been successful in this undertaking.  Although he could not comment on what the courts might do if someone complained about the percentage of bilingual positions, he advised that the previous challenge had been successful largely because of the practical approach taken with respect to the policy’s implementation.  Further, he noted that the numbers were more or less the same in terms of the designated positions in the various former municipalities and those in the new City. 

 

In reply to a final question from Councillor El-Chantiry, Mr. Pagé confirmed that the policy did not preclude Anglophones from applying for designated positions.  However, if an Anglophone was deemed to be the best candidate for the job and was hired into a designated position, he or she would be expected to enrol in language training and learn the second language. 

 

Responding to a series of questions from Councillor Chiarelli, Mr. Pagé stated there was no hidden attempt to exclude Anglophone workers from the Client Service Centres (CSC).  He re-iterated the explanation provided earlier with respect to the proportions that would be designated in the various CSCs, depending on demographics.  He confirmed that, designating 27.6% of the positions as bilingual effectively meant that the balance (72.4%) would not be designated bilingual. 

 

Speaking to the percentage of designated positions, as outlined in the report, he maintained he followed Council’s direction in that Council adopted a policy that was meant to be functional.  Therefore, unless Council directed him otherwise or the demographics changed, there was no intention to deviate from the methodology or to change the numbers in one direction or the other.

 

In response to a final question from Councillor Chiarelli, Mr. Pagé indicated he did not believe the number of complaints had increased since the policy’s adoption. 

 

Responding to questions from Councillor Wilkinson, Mr. Pagé acknowledged that the policy did not specifically speak to “practical” bilingualism.  However, he maintained this had always been the approach in terms of its implementation.  He then re-iterated his earlier comments with respect to the legal challenge having been successful largely due to the practical approach taken in applying the policy.  Adding to this, Mr. Rick O’Connor, City Solicitor, confirmed that the Clerk had summarized the situation correctly.  He noted that the City of Ottawa Act 1999 required that the City have a bilingualism policy.  The policy was challenged on a constitutional basis and the City was successful at trial.  He indicated this success was largely due to the functionality of the approach taken to implement the policy. 

 

Councillor Wilkinson wondered if the City had any positions that were French-only.  Ms. Renée Bertrand, Manager of the French Language Services Division, indicated there were such positions in francophone daycare centres and at the Centre d’Acceuil Champlain.

 

Responding to a final question from Councillor Wilkinson, Ms. Bertrand advised that any designated positions within community resource centres would be due to the fact that these are mandated by the Province to have designated position.  These would not be due to the City’s bilingualism policy.

 

Councillor Bloess posed a series of questions with respect to the funding agreement between the City of Ottawa and the Department of Canadian Heritage.  Mr. Pagé confirmed that the previous agreement had been for 5 years and $500,000 per year whereas the current agreement was for 2 years and $430,000 per year.  Ms. Bertrand clarified the difference in the yearly amount did not represent a reduction in the federal government’s contribution.  It reflected the fact that $70,000 was going directly to a project previously subsidized by the City. 

 

In closing, Councillors Cullen, Doucet and Desroches each discussed the City’s demographics and they spoke in support of the policy and the approach taken with respect to its implementation.

 

Mr. Pagé referenced accomplishments with respect to the provision of childcare and recreational services and he took the opportunity to recognize the efforts of Mr. Steve Kanellakos, Deputy City Manager of Community and Protective Services, Mr. Aaron Burry, Director of Parks and Recreation, Ms. Renée Bertrand, Manager of the French Language Services Division and Ms. Manon Henrie-Cadieux, former Manager of the French Language Services Division. 

 

A written submission was received from Chris Mercer and is held on file with the City Clerk. 

 

That the Corporate Services and Economic Development Committee recommend Council receive the 2007-2008 Report on French Language Services.

 

                                                                                                CARRIED

 

 

 

 

 


[1] It should be noted that municipal by-laws and some other procedures related to offering services in English and in French have been in place for more than 30 years in the Ottawa area.

[2] These increases would have been even greater if an emergency had not required the City to close a swimming pool at which a number of summer programs in French had been planned.

[3] Although all senior management positions from level 1 to level 3 are already designated bilingual under the Bilingualism Policy; the Project was helpful in defining the required levels of second language proficiency for these approximately 35 positions.

            [4] In addition to these regular sessions, 17 City employees took second language training courses in French during July and August.

            [5] Of these 241 persons, approximately 50 were registered for SDL.

                [6] In 2007, two work teams took advantage of this training: 20 employees of the Gary Armstrong Long Term Care Facility and 36 bus drivers, at three different worksites.

[7] The City’s Professional Training Centre is considered able to manage the anticipated increase in testing without additional resources.