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Horizontal Evaluation of the Action Plan for Official Languages 2018–2023: Investing in Our Future

Evaluation Services Directorate

January 20, 2023

On this page

List of tables

List of figures

List of acronyms and abbreviations

ACUFC
Association des collèges et universités de la francophonie canadienne
CADMOL
Committee of Assistant Deputy Ministers on Official Languages
CCA
Canada Council for the Arts
CHSSN
Community Health and Social Services Network
ESD
Evaluation Services Directorate
ESDC
Employment and Social Development Canada
FAMCs
Francophone and Acadian minority communities
FCFA
Fédération des communautés francophones et acadienne du Canada
FOLS
First official language spoken
GBA Plus
Gender-based Analysis Plus
HC
Health Canada
IRCC
Immigration, Refugees and Citizenship Canada
ISED
Innovation, Science and Economic Development Canada
JUS
Justice Canada
NRC
National Research Council Canada
OCOL
Office of the Commissioner of Official Languages of Canada
OLA
Official Languages Act
OLB
Official Languages Branch
OLHP
Official Languages Health Program
OLMCs
Official language minority communities
OLSPs
Official Languages Support Programs
PCH
Canadian Heritage
PHAC
Public Health Agency of Canada
PSPC
Public Services and Procurement Canada
RDÉE
Réseau de développement économique et d’employabilité
RIF
Réseau en immigration francophone
SSF
Société santé en français
StatCan
Statistics Canada

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Horizontal evaluation of the Action Plan for Official Languages 2018–2023: Investing in Our Future [PDF version - 1.27 MB]

Executive Summary

This document is the final report of the horizontal evaluation of the Action Plan for Official Languages 2018-2023: Investing in Our Future (hereinafter the Action Plan or the Plan). The Plan is the Government of Canada’s fourth five-year horizontal strategy for official languages. Canadian Heritage (PCH) is implementing the various components of the Plan in collaboration with federal partner departments and agencies.

The evaluation covers the period 2018–2019 to 2021–2022. It focuses on the plan’s relevance, design and implementation, effectiveness, and efficiency, with a particular emphasis on achieving results.

Key Findings

Relevance

The evaluation confirmed the relevance of the Action Plan. The Plan is well aligned with the needs and priorities of official language minority communities (OLMCs) identified during the 2016 Cross-Canada Official Languages Consultations. However, it does not meet all these needs. Several changes observed since 2018, such as the modernization of the Official Languages Act (OLA), issues of reconciliation with Indigenous peoples, support for diversity and inclusion, the growing needs of OLMCs and the shortage of staff, particularly in the education and health sectors, could influence the needs and priorities of the Action Plan.

The Action Plan adheres to the provisions of the OLA and represents the federal government’s commitments to official languages. Lastly, it remains aligned with PCH priorities as well as those of partner departments. However, Justice Canada’s Contraventions Act Fund is not aligned with the objectives of the Action Plan.

Design and implementation

Overall, the design and implementation of the Action Plan are adequate. However, the logic of the expected results needs to be reviewed for greater consistency. The Action Plan is generally considered to be positive, although it is perceived differently by stakeholders: as a communication or marketing tool; an essential support for OLMCs; a concerted effort or at least a contribution to the formal coordination of efforts or as a reporting tool.

In terms of implementation, there is good collaboration between federal institutions through interdepartmental committees, as well as with third parties that deliver certain components of the Action Plan initiatives. Furthermore, there are regular collaborations with community stakeholders and the provincial and territorial governments. That said, the evaluation noted that there is room for improvement with respect to horizontal collaboration and communication between partner departments and agencies.

Effectiveness

Since the evaluation was conducted at the mid-point of the Action Plan, the analysis of its effectiveness was limited. Nevertheless, most of the short-term outcomes are on track for 2023, despite the COVID-19 pandemic that delayed the implementation of several initiatives or slowed progress towards the set targets. The majority of expected medium-term outcomes are also moving in the desired direction.

However, the Action Plan’s initiatives are not sufficient to contribute to some expected long-term outcomes. Notably, the contribution of Francophone immigration is not sufficient to increase the demographic weight of Francophones outside Quebec. Some initiatives in the Action Plan contribute to the vitality of English-speaking OLMCs in Quebec, but the expected results for English-speaking Quebecers are not clearly articulated. The initiatives in place are not sufficient to impact the increase in the long-term bilingualism rate as expressed in the expected results. Lastly, the objective of developing the research capacity beyond Statistics Canada (StatCan) is not being met, as only Immigration, Refugees and Citizenship Canada (IRCC) has implemented an initiative that specifically focuses on developing research capacity.

Efficiency

Several practices promote efficient delivery, particularly the "by and for" model and the management of components of some Action Plan initiatives by third parties. The creation of teams or units within federal institutions that focus on official languages contributes to efficiency as well. Adapting programs and initiatives during the COVID-19 pandemic also helped identify other best practices by providing more administrative flexibility for funded organizations.

However, the assessment of the efficiency of the Action Plan was limited by a lack of adequate financial data. There are also gaps in its accountability. In particular, the data provided by partners as inputs are inconsistent, affecting the analysis of the achievement of expected outcomes.

Recommendations

Based on the findings and conclusions of the evaluation, two recommendations are proposed to address areas requiring particular attention and thus to improve some components of the Action Plan as well as to develop the next five-year strategy. The evaluation recommends that the Assistant Deputy Minister, Official Languages, Heritage and Regions:

Recommendation 1

Review the Plan’s pillars and components to increase the likelihood of achieving expected medium- and long-term results. Particularly those related to the following:

  • increasing the relative weight of Francophone and Acadian minority communities (FAMCs);
  • support for the vitality of Quebec’s English-speaking OLMCs; and
  • the increase in the bilingualism rate of English-speaking Canadians outside Quebec.

Recommendation 2

Identify ways to produce and ensure accountability and the availability of financial data that would help to better assess the effectiveness and efficiency of the Action Plan and any subsequent plans.

1. Introduction

The Action Plan for Official Languages 2018–2023: Investing in our Future (hereinafter the Action Plan or Plan) is the Government of Canada’s fourth five-year horizontal strategy on official languages.

The horizontal evaluation of the Action Plan focuses on its relevance, design and implementation, effectiveness, and efficiency, with a particular focus on achieving results. This report provides the key findings of the horizontal evaluation, as well as the conclusions and recommendations.

2. Action Plan profile

2.1. History

The Action Plan is the Government of Canada’s fourth five-year horizontal official languages strategy. From 2003 to 2018, the federal government supported official languages through various investments. The Action Plan builds on the achievements of previous five-year strategies. It will thus provide communities with the tools needed to benefit from existing programs and from new opportunities conducive to the development and improvement of services.Footnote 1 In total, the federal government committed to invest $2.7 billion over five years, beginning in 2018/19. Figure 1 shows the evolution of federal investments from 2003 to 2023.

Figure 1: evolution of federal investments (2003–2023)

Source: Government of Canada, 2018.

Figure 1: evolution of federal investments (2003-2023) – text version
Federal Investments Years Total investments over 5 years
Action Plan 2003-2008 2003-04 to 2008-09 $1.9B
Roadmap 2008-13 2008-09 to 2013-14 $2.2B
Roadmap 2013-18 2013-14 to 2018-19 $2.2B
Action Plan 2018-23 2018-19 to 2023-24 $2.7B
Historical Base - $1.1B
Strategies 2003-18 - $1.1B
Action Plan 2018-23 - $0.5B

The 2018–2023 Action Plan represents the largest investment in official languages since 2003. It introduces new funding to the previous five-year strategy totalling $410 million over five years, beginning in 2018, and $90.41 million for subsequent years.Footnote 2 The Plan builds on the performance of existing initiatives and programs, enhances existing funding, and introduces new targeted measures and investments.Footnote 3

2.2. Horizontal strategy

As with previous five-year strategies, the Action Plan is a horizontal strategy that includes the participation of several federal institutions. The new funding for 2018–2023 includes seven federal partners:

The Action Plan is part of a logic of continuity. Partnerships developed or consolidated under the 2013–2018 Roadmap continue to receive funding. In addition to the partners mentioned above, the Action Plan includes the following partners: Innovation, Science and Economic Development Canada (ISED); the Canada Council for the Arts (CCA); the National Research Council Canada (NRC); and Public Services and Procurement Canada (PSPC).Footnote 5 ISED coordinates the efforts of the various regional development agencies. These departments did not receive new funding from the 2018–2023 Action Plan, unlike the other seven federal institutions.

2.3. Consolidation of existing and new programs

Current programs

The Action Plan validates the investments made in the 2013–2018 Roadmap and provides an additional envelope to consolidate some initiatives or create new ones. Table 1 presents the initiatives and programs since the Roadmap, and their breakdown by federal institutions.

Table 1: initiatives or Programs of the 2018–2023 Action Plan
Initiatives and programs Federal institution responsible
  • Minority-language education (federal provincial/territorial agreements)
  • Collaboration with the non-governmental sector (minority language organizations)
  • Intergovernmental collaboration on minority-language services (federal provincial/territorial agreements)
  • Collaboration with the community sector (minority language organizations)
  • Strategic funds
  • Community Cultural Action Fund (CCAF)
  • Support for second language learning (federal provincial/territorial agreements)
  • Collaboration with the non-governmental sector (second language organizations)
  • Summary language bursary program (Explore, Destination Clic)
  • Official language assistants (Odyssey)
  • Promotion of linguistic duality (appreciation and reconciliation)
  • Promoting the offer of bilingual services in the volunteer sector
  • Support for interpretation and translation
  • Young Canada Works in both official languages
  • Interchange Canada (official languages initiative)
  • Musical Showcase Program for artists from official language minority communities (OLMCs)
  • National Translation Program for Book Publishing
 PCH
  • Market Access Strategy for artists from OLMCs
 CCA
  • Support for Francophone immigration — Francophone integration pathway; collaboration and accountability
 IRCC
  • Social Partnership Initiative in OLMCs
  • OLMCs Literacy and Essential Skills Initiative
  • Enabling Fund for OLMCs (skills and employment)
 ESDC
  • Official Languages Health Program (OLHP) (networks, training for health professionals and projects to improve access to health services)
 HC
  • Networks, training and access to justice services; Contraventions Act Fund
 JUS
  • Economic Development Initiative (collaboration); Atlantic Canada Opportunities Agency; Canada Economic Development for Quebec Regions; Canadian Northern Economic Development Agency; Federal Economic Development Agency for Northern Ontario; Federal Economic Development Agency for Southern Ontario; and Western Economic Diversification Canada.
 ISED
  • Strengthening the language industry and technologies
 NRC
  • Language Portal of Canada
 PSPC

Source: Government of Canada, 2018, 2020.

Enhancement of existing programs and new initiatives

In addition to supporting the programs and initiatives of the previous five-year strategy, the Action Plan introduces new investments to fund 26 activities stemming from the Plan’s three main pillars:

  1. Strengthening our communities: This pillar aims to not only restore and maintain the target of the relative weight of Francophones living in minority communities to 4% by 2036, but also to support Anglophones in Quebec in the unique challenges they face, particularly outside of urban centres.
  2. Strengthening access to services: As with the previous pillar, its objective is to restore and maintain the relative weight of Francophones living in minority communities by 2036, and to support Anglophones in Quebec. In addition, it recognizes the importance of the availability of services in the minority official language as an essential factor in the vitality of communities.
  3. Promoting a Bilingual Canada: This third pillar aims to encourage the learning of the second official language and to promote the bilingualism of Canadians. The goal is to increase the national bilingualism rate from 17.9% to 20% by 2036, and to increase the bilingualism rate of Anglophones outside Quebec from 6.8% to 9% by 2036.Footnote 6

In addition to these three pillars, the Action Plan provides new funding to support StatCan’s Language Statistics Section. This funding increases the capacity for data collection to support evidence-based decision-making and results reporting.Footnote 7 This funding enables StatCan to establish and maintain ongoing partnerships with key federal, community, and provincial stakeholders in the area of official languages.

Table 2 summarizes the Action Plan’s activities for each of the three pillars, as well as the funding provided for StatCan.

Table 2: new investments under the 2018–2023 Action Plan by pillar and activity
Pillar Activities by pillar Federal Institution responsible Total cost over 5 years ($ million)
Pillar 1 — Strengthening our communities Support for community spaces – infrastructure PCH 67.25
Increase in core funding for community organizations PCH 57.37
ESDC 4.50
HC 4.40
JUS 3.75
Enhancement of the Community Cultural Action Fund PCH 11.16
Funding for Quebec English-speaking communities PCH 5.28
Strengthening community media and radio PCH 14.53
Strengthening strategic investment capacity PCH 10.00
Strengthened support for French-language services in the territories PCH 60.00
Support for school and community infrastructure PCH 28.00
Francophone immigration — Francophone integration pathway including the Welcoming Francophone Communities initiative IRCC 36.56
Francophone immigration – Cooperation and Accountability IRCC 4.20
Support for early childhood development – professional training and capacity building ESDC 13.15
Support for early childhood development — Support for the opening of day care centres and childcare services ESDC 6.85
Pillar 2 — Strengthening access to services Civic Community School Support Fund — Community partnerships for schools PCH 5.25
Recruitment of teachers for minority community schools PCH 31.29
Enhancement of the Official Languages Health Contribution Program — Training and Retention of Health Human Resources HC 5.00
Enhancement of the Official Languages Health Contribution Program – Strengthening the capacity of Anglophone health networks in Quebec HC 3.50
Enhancement of the Official Languages Health Contribution Program — Innovative projects HC 4.00
Enhanced early childhood health promotion programming PHAC 10.00
Enhancement of the Access to Justice in Both Official Languages Support Fund JUS 10.00
Pillar 3 — Promoting a Bilingual Canada Mobile application for learning French and English as a second language PCH 16.50
Enhancing the Explore second-language program PCH 21.00
Enhancement of the Odyssey official-languages monitor program PCH 17.50
Bursaries for post-secondary education in French as a second language PCH 12.60
Recruitment of teachers for French immersion schools PCH 31.29
Additional support for Young Canada Works in Both Official Languages PCH 1.20
Support Measures Continuing Statistics Canada’s Language Statistics Section StatCan 3.00
TOTAL - - 499.13

Source: Government of Canada, 2018, 2020.

2.4. Operation, program objectives and expected outcomes

The strategy for implementing the 26 new activities detailed in the Action Plan includes four common long-term outcomes:

  1. The relative weight of Francophones outside Quebec is restored and maintained over the long-term (to 4% by 2036).
  2. The vitality of English-speaking communities in Quebec is supported, particularly outside of urban centres.
  3. The bilingualism rate among Anglophones outside Quebec is increased (from 6.8% to 9% by 2036) to increase the individual bilingualism rate of Canadians (from 17.5% to 20% by 2036).
  4. The public service’s capacity for official languages research is strengthened.Footnote 8

Achievement of the objectives of each of the initiatives is assessed based on their contribution to the four common results rather than the three pillars discussed in section 3.3.Footnote 9 Figure 2 presents the short, medium, and long-term results of the Action Plan. It is therefore expected that existing programs, enhancements and new initiatives will:

Figure 2: short-, medium- and long-term results

Source: Government of Canada, 2020.

Figure 2: short-, medium- and long-term results – text version

Short-term

Outcome 1
  • Support for immigration
  • Support for learning and care of young children
  • Support for access to minority language education
Outcome 2
  • Support for access to justice
  • Support for access to health services
  • Support for communities to be heard
  • Support for culture and community gathering places
Outcome 3
  • Online tool
  • Support for youth
  • Support for second language training
Outcome 4
  • Support for Statistics Canada’s language statistics section

Medium-term

Outcome 1

Immigration

  • Francophone communities outside Quebec are strengthened by immigration

Transmission of language

  • Francophone communities outside Quebec are better equipped to pass on their language to their children
Outcome 2

Retention

  • Official language minorities have an increased ability to live in their language in their communities
Outcome 3
  • English-speaking Canadians outside Quebec have greater access to opportunities to learn French and improve their French skills
Outcome 4
  • Statistics Canada produces more analytical documents and articles on official languages and those who use them, as well as an official language

Long-term

Outcome 1

Francophones outside Quebec

  • The relative weight of Francophones outside Quebec is restored and maintained over the long-term
Outcome 2

English speakers in Quebec

  • The vitality of Quebec English-speaking communities, particularly in their regions, is supported
Outcome 3

Bilingualism

  • The rate of bilingualism of English speakers outside Quebec has increased
Outcome 4

Research

The official languages research capacity of the public service is strengthened

2.5. Management and governance

In addition to taking responsibility for its activities, PCH is responsible for:

PCH’s Official Languages Branch (OLB) is responsible for the horizontal coordination of all Government of Canada activities related to official languages. The OLB is responsible for the Official Languages Coordination Program, which supports horizontal coordination of the Action Plan and interdepartmental coordination efforts.Footnote 11 The OLB’s coordination work is centralized and carried out through various governance committees on official languages, described below.

Several committees support horizontal coordination efforts:

2.6. Action Plan resources

As noted earlier, the Action Plan represents a total investment of approximately $2.7 billion over five years. Table 3 presents the breakdown of these financial resources by federal institution over five years.

Table 3: breakdown of financial resources by federal institutions, 2018–2023
Federal institutions Current investmentsTable 3 note * ($ million) New investments ($ million) Total ($ million)
PCH 1,721.43 390.22 2,111.65
CCA 2.75 - 2.75
IRCC 29.50 40.76 70.26
ESDC 80.50 24.50 105.00
HC 174.30 16.90 191.20
PHAC - 10 10
JUS 89.80 13.75 103.55
ISED 30.50 - 30.50
StatCan - 3 3
NRC 10 - 10
PSPC 16 - 16
Total 2,154.78 499.13 2,653.91

Source: PCH, 2021c.

Table 3 notes

Table 3 note *
  1. Current investments are the initial expenditures of the 2018–2023 Plan, prior to the announcement of the additional investment of the Plan.
  2. PCH’s Official Languages Support Programs (OLSPs) have also benefited from annual increases (2019, 2020, and 2021 Federal Budget, and emergency funding related to the impact of the pandemic on these programs and their main beneficiaries).

Return to table 3 note * referrer

3. Evaluation approach and methodology

3.1. Scope and timeframe

The evaluation was conducted in accordance with the commitments made in the submission to the Treasury Board and in the PCH departmental evaluation plan for 2020/21 to 2024/25. This evaluation focused on the relevance of the Action Plan, its design and implementation, effectiveness, and efficiency, while focusing on achieving results. The evaluation covers fiscal years 2018/19 to 2020/21 and part of fiscal year 2021/22.

3.2. Evaluation questions

Key evaluation questions are described in Table 4. More information on the indicators, data sources, and data collection methods associated with these questions can be found in the evaluation framework (presented in Appendix A).

Table 4: evaluation questions
Issues Evaluation questions
Relevance
  1. How well does the Action Plan address the needs and aspirations of Canadians?
  2. How well is the Action Plan aligned with the priorities of Canadian Heritage, the Action Plan partner departments, and the federal government?
Design and implementation
  1. To what extent were the following elements considered in the design and implementation of the Action Plan:
    • Recommendations stemming from the horizontal evaluation of the 2013–2018 Roadmap?
    • Gender-Based Analysis Plus (GBA Plus) considerations?
  2. Is the specific contribution of the Action Plan as part of all Government of Canada official languages activities clearly identified and understood by all partners and key stakeholders?
  3. Is the logic behind the design of the three-pillar Action Plan and the contribution of the pillars to the overall intended results fully understood and considered appropriate by all federal partners and key stakeholders?
  4. As applicable, what is the added value of consolidating federal partners’ initiatives under the Action Plan?
Effectiveness
  1. To what extent were the short-term expected results of the Action Plan achieved during the period of 2018/19 to 2021/22?
  2. To what extent has the Action Plan contributed to progress toward expected results over the medium-term?
  3. To what extent has the Action Plan contributed to progress toward expected results over the long-term?
  4. To what extent have PCH activities contributed to the progress toward the intended results in terms of awareness and coordination?
Efficiency
  1. Are the most efficient means being used to achieve the expected results?
  2. Are there other ways to achieve the same results more effectively?

3.3. Data collection and analysis methods

The evaluation was based on a mixed methodology involving the use of multiple sources of primary and secondary quantitative and qualitative data.

Document and data review: A review of several government reports, as well as documents of administrative or strategic nature produced by stakeholders of the Action Plan, such as partner departments, third parties, organizations that represent OLMCs, and linguistic duality groups.

Literature review: Targeted research focused on articles dealing with OLMCs and Canadians from all regions of the country who benefit from the Action Plan. An overview of previous reviews identified scientific articles and literature that remain relevant to incorporate in the analysis and findings. To complement these sources of information, several annual reports, reviews, and other government documents were consulted.

Interviews with key stakeholders: 37 interviews were conducted with 53 key informants, consisting of 11 key PCH stakeholders, 22 key partner stakeholders, and 20 other stakeholders. Individual interviews were prioritized, but a few group interviews were also held.

Analysis of existing surveys: The comparative analysis of public opinion surveys conducted by PCH included:

Case studies: The objective of the case studies on the vitality of OLMCs was to update and improve the case studies conducted in 2012 and 2016. As with previous case studies, they were based on the vitality variables developed by the OLB.

Each case study included telephone or virtual interviews with several key community stakeholders (target group representatives, service providers, and reputable local observers), conducted between November 1 and December 21, 2021. A total of 64 key stakeholders were interviewed, 30 of whom also participated in 2016. Each study included a review of relevant documents and additional statistical data provided by the OLB Research Group covering the eight communities.Footnote 14

Expert panels: Three expert panels on official languages were assembled virtually to obtain their views on the interpretation of certain findings that emerged from this evaluation and to contextualize them as needed. They were structured around three themes based on the long-term expected results of the Action Plan:

The composition of each panel included members from the two official language minorities, from different regions of Canada and from different disciplines.

3.4. Constraints, limits, and mitigation strategies

Table 5 presents the key constraints and limitations that have had an impact on the evaluation of the Action Plan, as well as the strategies to mitigate them.

Table 5: constraints, limits, and mitigation strategies
Constraints, limits Mitigation strategies
The evaluation was conducted before the end of the five-year plan. The evaluation focused on the short-term results for fiscal years 2018/19, 2019/20, 2020/21, and then on the progress toward the expected medium-and long-term results in line with the intervention logic of the Action Plan.
Few evaluations from partners are available. Those that were available contained preliminary findings for the evaluation period. Other elements of the response to progress toward the expected results of the Action Plan include documentation, interviews, and expert panels.
Data from the 2021 Census was not available at the time of data collection. When this report was being written, some data from the 2021 Census, such as bilingualism rates and the demographic weight of OLMCs, were added to the analysis. For the other indicators, data from the 2016 and 2011 Censuses were used.
The COVID-19 pandemic, the 2021-election period, and staff turnover affected the availability of key stakeholders. The interviews were succinct with targeted questions for each type of stakeholder. The interview period was extended to accommodate as many targeted stakeholders as possible, at a convenient time.
The public opinion survey planned for 2021 could not be conducted. The results of two PCH public opinion surveys conducted in 2018 and 2019 were used. However, they reflect opinions at the very beginning of the Action Plan period. In addition, their themes and methodologies are different (see section 3.3).
Incomplete data for several indicators on progress toward the expected results of partner departments and agencies. The evaluation relied on the most recent information (compiled by the OLB), but the data provided by departments and agencies did not necessarily correspond to the indicators as expressed in the performance measurement framework, and were not all available for 2018/19, 2019/20, and 2020/21, and very little for 2021/22.

4. Evaluation findings

4.1. Relevance

Evaluation questions

Key findings:

The Action Plan was developed at a time when worrisome demographic trends were confirmed.Footnote 15 Data from StatCan indicated a decrease in the relative weight of Francophones in the country, particularly in Francophone and Acadian minority communities (FAMCs). In addition, there was a slow increase in the rate of bilingualism among English-speaking Canadians outside Quebec and the challenges faced by English-speaking rural communities in Quebec.Footnote 16

The development of the last Action Plan was preceded by the 2016 Cross-Canada Official Languages Consultations.Footnote 17 The Action Plan is well aligned with the trends identified by StatCan data and the needs and priorities identified by OLMCs during the consultations. In particular:

However, the Action Plan does not address all the needs identified during the 2016 consultations, such as:

Several writings have raised a deterioration of the Action Plan’s budget envelope for the past several years.Footnote 18 Therefore, the increase of $410M in the budget envelope for the 2023 Action Plan was necessary. However, according to several key informants and the experts consulted, this increase was more of a catch-up than a real increase. In fact, the funding for the Action Plan does not live up to its objectives, particularly that of increasing the rate of bilingualism of Canadians.

The main changes noted since 2018 that can influence needs and priorities are:

The Action Plan is aligned with the provisions of the OLA and represents the Government of Canada’s commitment to official languages, particularly to the development and vitality of OLMCs in Canada. PCH’s annual departmental reports present official languages as one of the department’s five key priorities or responsibilities, which includes the implementation of the Action Plan. In addition, the priorities of the Action Plan and those of the main partner departments (HC, PHAC, ESDC, IRCC, JUS, StatCan) also remain aligned.Footnote 20 However, the latest evaluation of the Justice Canada Contraventions Act Fund indicates that it is not well aligned with the objective and purpose of the Action Plan. This was also raised in previous evaluations of the Fund and previous five-year plans.

In addition to the partners mentioned above, the Action Plan includes existing programs managed by ISED and the regional economic development agencies, CCA, NRC, and PSPC. However, key informants indicated that official languages remain a rather peripheral file to the core mission of these departments and agencies.

4.2. Design and implementation

Evaluation questions:

Key findings:

Design of the 2018–2023 Action Plan

When the Action Plan was being designed, the four key recommendations of the last evaluation of the 2013–2018 Roadmap and GBA Plus considerations were incorporated. It was recommended to prioritize the organizations that respond to the emerging needs of OLMCs, to better define common horizontal results and indicators, to conduct research on official languages, and to develop follow-up mechanisms to distinguish new investments. In addition, a follow-up mechanism system with federal partners has been put in place to document the ongoing consideration of GBA Plus considerations.

Specific contribution of the Action Plan

In general, there is a good understanding of the purpose and contribution of the Action Plan within all Government of Canada official languages activities.

The Action Plan is perceived in various ways by stakeholders, including:

However, the Action Plan is criticized by some informants because it does not include all federal activities on official languages. More importantly, the Plan is more targeted at Francophone OLMCs than Anglophone OLMCs and all Canadians.

Added value of the Action Plan

There is little information on the added value of pooling programs and initiatives in a single plan. According to the key informants, partner departments and agencies, as well as communities, are making an effort to increase the complementarity of the Plan’s components. This seems to be clearer with respect to health, Francophone immigration, and the education continuum, including early childhood.

There is good collaboration among several federal institutions through interdepartmental committees, such as the committee established by HC, PHAC, and the Canadian Institutes of Health Research.Footnote 21 The available documentation also indicates regular collaboration with community stakeholders and provincial and territorial governments. Key informants indicated that collaboration with third parties delivering some of the Action Plan initiatives is good. These third parties also work together to avoid duplicating their efforts.

While there are several examples of collaboration, key informants feel that horizontal collaboration and communication between partner departments and agencies could be improved, as there are still opportunities for collaboration that are not being exploited: for example, in the sector of:

According to annual reports on activities, partner departments and agencies share lessons learned. In particular, these partners report the importance of maintaining clear and sustained communication with partners, including by organizing regular meetings to resolve problems as they arise. They also stress the need to strengthen interdepartmental collaboration to promote the sharing of best practices, discuss issues or explore avenues of collaboration.

In addition, PCH’s timetables for funding applications or project approval defined by the PCH barely align with those of provinces and territories and partners. The Plan’s midterm report reflects a recurring finding, [translation] “the lack of complementarity or alignment in the timetables and timeframes established by PCH processes and activities, the obligations of provinces and territories and partners”.Footnote 22

Finally, experts noted that the grouping of programs and initiatives and successive five-year plans have contributed to longer-term sustainable effects, although these are difficult to measure. For example, the Réseaux en immigration francophone (RIFs) was established through the five-year plans and IRCC programming. Experts indicate that they are now well established and appear to have positive effects. The RIFs were key players in co-planning and implementing the pilot initiative for Welcoming Francophone Communities that is underway (see new investments in Table 2).

Logic of expected outcomes of the Action Plan

Although the Action Plan is divided into three key pillars, the contribution logic relates more between the initiatives and the four common outcomes as shown in Figure 2.Footnote 23 Several key stakeholders indicated that the Action Plan mandate is clear and that there is consistency between the Action Plan and the various levels of expected outcomes. On the other hand, some key stakeholders and experts feel that the logic of the results chain is not sufficiently clear. For example:

4.3 Effectiveness

Evaluation questions:

Key findings:

Short-term results

Since the evaluation was conducted at the mid-point of the Action Plan, most short-term results have not been achieved yet (Figure 3). Nevertheless, most of them are on track to be achieved by 2023.

Figure 3: short-term results

Source: Government of Canada, 2020.

Figure 3: Short-term results – text version
Short-term
Outcome 1
  • Support for immigration
  • Support for learning and care of young children
  • Support for access to minority language education
Outcome 2
  • Support for access to justice
  • Support for access to health services
  • Support for communities to be heard
  • Support for culture and community gathering places
Outcome 3
  • Online tool
  • Support for youth
  • Support for second language training
Outcome 4
  • Support for Statistics Canada’s language statistics section

Key stakeholders noted that increased core funding for several organizations enabled the building of their capacity. In addition, the “by and for”Footnote 24 approach to communities has contributed to notable successes. However, some issues have slowed or limited progress toward short-term results:

Support for Francophone immigration

Under IRCC’s responsibility, two initiatives, one new and one enhanced, directly contribute to supporting Francophone immigration in minority communities. These initiatives are the Francophone integration pathway (Table B-14 and B-15, Appendix B) and Collaboration and Accountability (Table B-15, Appendix B). Targets for both initiatives were either met or exceeded for each year of the Action Plan.

Key stakeholders believe that the investments under the Action Plan enabled IRCC to publish its strategy on Francophone immigration in French-language minority communities in 2019. In addition, one of the components of the Francophone integration pathway—that is, the initiative of the 14 Welcoming Francophone Communities—was identified as an interesting initiative that is already achieving positive results. In particular, the initiative demonstrates the importance of the “by and for” Francophones approach, as it enables community organizations that do not focus primarily on immigration to be involved in welcoming Francophone newcomers, while also enabling the optimization of partnerships.

Stakeholders working in this sector argue that funding for immigration has filled gaps in the continuum of services (e.g., at in terms of reception services). Moreover, the data shows that since the implementation of the Francophone integration pathway, more French-speaking immigrants have availed themselves of services in French offered by a Francophone organization. In fact, the share of French-speaking immigrants served by Francophone service providers compared to all users of French-language services has been steadily increasing, from 44% in 2018/19; to 51% in 2019/20; and 57% for 2020/21.Footnote 25 When assessing the OLMC immigration initiative in 2017, this percentage was 32%.Footnote 26 In addition, the department has hired program officers to support the operationalization of the Francophone integration pathway.

In recent years, IRCC has also strengthened official languages governance within its department, including by creating a Francophone Immigration and Official Languages (Part VII) Directorate. The department also strengthened the mechanisms for dialogue with communities and organizations working in this area. In short, the department contributes to Francophone immigration in minority communities by implementing collaboration and accountability initiatives.

Despite all that has been put in place, most stakeholders who have spoken on this matter said that there has been some progress, but not significant enough concerning Francophone immigration in minority communities. Some challenges were highlighted:

Support for early childhood

Through two new initiatives (Tables B-16 and B-17, Appendix B), ESDC contributes to access to early childhood services in minority communities by creating jobs and spaces in childcare centres in collaboration with the Réseau de développement économique et d’employabilité (RDÉE), as well as by creating partnerships to provide training to educators in FAMCs. The recent evaluation of the Enabling Fund for Official Language Minority Communities indicates that RDÉE has entered into 12 sub-agreements with service providers in support of community projects.Footnote 27 However, since these initiatives are recent, it is too early to assess their impacts.

According to key informants, there is still little French-language training at the higher levels and few continuing education programs in both official languages. That said, the Action Plan has led to progress, and the stakeholders involved express satisfaction, noting that the programs have been well received and enable communities to act according to their needs and particularities. In addition to the new spaces in childcare centres, stakeholders highlighted the following progress:

Some stakeholders point out that the National Early Childhood Management Committee has facilitated adaptation in times of pandemic by enabling the rapid identification of issues exacerbated by the health crisis, such as the decline in the number of trained educators in communities and the low motivation to complete training. It also identified possible solutions: focus on technological support, provide support for students in training programs, offer a more flexible educational path depending on availability, and raise awareness among employers of the importance of training.

Several stakeholders highlighted challenges beyond the pandemic. It remains difficult to recruit and retain qualified staff in this area. Lack of financial support for infrastructure projects—for example, new early childhood centres—remains a challenge, although provincial and territorial input is also required. Finally, the Action Plan provides insufficient resources to meet early childhood needs for the English-speaking community in Quebec. Case studies show that the English-speaking communities of Beaconsfield and New Carlisle complain about the absence of English-speaking early childhood centres and the lack of spaces in English-language childcare centres.

Support for instruction in the minority language

PCH enhanced its contribution to minority language education through two new initiatives: partnerships for citizen community schools (Table B-1, Appendix B) and the contribution to the Teacher Recruitment and Retention Strategy in Minority French-Language Schools (Table B-2, Appendix B). There were 371 civic community schools in 2019/20 and 743 in 2020/21, while the targets were 125 and 518, respectively.

The target of 13 initiatives (one in each province and territory) by 2022/23 has almost been reached in terms of the recruitment and retention of teachers. Data is not available to quantify the decrease in the percentage of job vacancies.

While the targets are largely exceeded or in the process of being exceeded (see Tables B-1 and B-2, Appendix B for more details), key stakeholders believe that there are several challenges hindering progress toward better access to minority language education and a real continuum in this area. While demand exceeds supply at several levels of education in some provinces and territories, the retention of students of parents’ rights holders to secondary education, and especially post-secondary education, is a problem in other provinces and territories.

In addition, case studies indicated that access to pre-school education in the minority language presents challenges in Surrey, Summerside, Pontiac, Beaconsfield, and New Carlisle. In elementary school, there is an increase in enrollment in Surrey and London, but there is a decrease in enrollment at the English school in Beaconsfield. Stakeholders and experts also highlighted the limited provision and precariousness of French-language post-secondary education outside Quebec, which continues to impede access to a continuum of minority-language education. In Quebec, stakeholders who participated in the case studies indicate that access to English education is generally declining due to the legislative context that restricts it.

With respect specifically to teacher recruitment and retention activities, key stakeholders and case studies show that activities focus more on the recruitment of teachers. For example, there are difficulties in recruiting minority-language education workers in Timmins, London, Pontiac, and Summerside, so efforts have focused on this.

Support for community voices

PCH contributes to support for community voices through media capacity building (Table B-4, Appendix B), increased internship opportunities to ensure succession (Table B-5, Appendix B), the provision of strategic projects, the enhancement of the Funding for Quebec English-speaking communities (Table B-6, Appendix B) and with other departments (ESDC, JUS, and HC), and the increase of core funding for OLMC community organizations (Table B-24, Appendix B).

The targets, almost all set over five years, are on track to be achieved by 2022/23, except for the number of strategic projects, which remain low, at 6 for 2018/19 and 2020/21, and 2 for 2019/20, well below the target of 13 projects per year (Table B-24).

For the core funding of community organizations, ESDC, HC, and JUS have planned a distribution of funds to enable them to meet their targets for 2022/23 (Table B-24, Appendix B). Finally, PCH is on track to meet its targets for increasing funding for certain organizations and supporting new ones financially.

Most stakeholders who commented confirmed that there has been good progress in the “supporting community voices” outcome. In their view, the increase in core funding enables community organizations to develop their internal capacity to better express political, social, and community demands to different levels of government.

In addition, funding for community media and radio has helped communities share, express themselves, and communicate. Again, the importance of the “by and for” approach in achieving this outcome was emphasized by several key stakeholders. However, some of them feel that per capita funding was lower for Anglophone than Francophone minority organizations, that the increase in core funding for organizations could have been administered differently to favour smaller organizations, and that this funding should take inflation into account.

Support for culture and gathering spaces

PCH contributes to community cultural activities through community educational infrastructure projects (Table B-7, Appendix B), cultural, heritage, and artistic activities in OLMCs, and cultural activities in (Table B-8, Appendix B). The department has met targets for infrastructure projects and is on track to meet targets for cultural activities in schools by 2022/23. The stakeholders noted that over 70,000 students participated in an initiative of the civic community school in the first two years of the program, despite the pandemic and the fact that only a fraction of the selected projects could be completed before the pandemic.

Overall, stakeholders were satisfied with cultural and gathering spaces, although funding remains relatively low compared to the needs related to the vitality of OLMCs. In addition, despite the availability of micro-grants to fund artistic, cultural, and heritage activities for English-language schools in minority communities, some stakeholders noted that the Action Plan does not make the same resources available to the English-language community in Quebec.

Access to justice

The enhancement of the Access to Justice in Both Official Languages Support Fund has three expected outcomes:

JUS thus contributes to a better access to justice in both official languages. Annual targets for translation and training were achieved. In terms of legal information, these activities appear to be on the right track to achieve the targetFootnote 29 (Table B-21, Appendix B).

Stakeholders noted that they were very pleased with projects for the Anglophone community in Quebec, which included a project with the Quebec Community Groups Network, as well as funding for Educaloi and the Côte-Nord Community Justice Centre.

Outside Quebec, the department targeted underserved communities, with no French-speaking lawyer association (e.g., in Prince Edward Island, Newfoundland and Labrador, and in the three territories) and few community organizations working in the field of justice. These regions have been invited to the Departmental Advisory Committee, and some of the organizations representing them have even received core funding. Nationally, the Fédération des associations des juristes d’expression française also received increased core funding, enabling it to better represent the entire pan-Canadian Francophonie and serving as leverage with other funders.Footnote 30

Finally, stakeholders suggested that funding over a longer period would help organizations recruit and retain lawyers in minority language situations, which in turn would improve access.

Access to health services

The data shows that enhanced initiatives and a new HC/PHAC initiative contribute to access to health services for OLMCs through the creation of community health organizations, French-language health training in minority communities, and early childhood health promotion projects. The department and agency exceeded their business targets (Table B-22, Appendix B). The targets of the three activities of the Official Languages Health Program (OLHP) conducted by HC have been achieved (Tables B-18 to B-20, Appendix B). Regarding early childhood health promotion, an initiative led by PHAC, the targets of 45 projects and 3,170 individuals in 2020/21 were largely exceeded. There was no specific target until 2020/21. PHAC funding to the Société santé en français (SSF) and the Community Health and Social Services Network (CHSSN) enabled them to select and fund 51 projects to improve access for vulnerable families and OLMCs to programs to promote and protect the health of families and children, reaching over 10,564 people (Table B-22, Appendix B).

Most of the stakeholders consulted gave a positive assessment of the Plan’s design and implementation in the health sector. Funding was provided to HC and PHAC, who rely on third parties to implement the initiatives. This approach enables intermediaries to mobilize their existing structures within their communities and has strengthened the capacity of communities to express their needs to the various levels of government. As in the education sector, several stakeholders noted that the willingness of each provincial or territorial government to support such initiatives has an impact on their success and leads to disparate results across the country.

Key stakeholders indicated that needs remain with respect to access to health services, home care for seniors, and long-term care. While community organizations help to address gaps and needs, case studies show that some continue, such as access to a family doctor or mental health services. In addition, stakeholders indicate that funding for early childhood health services is insufficient to meet demand and that access to health in the minority language is even more limited in remote areas. Other issues exist, such as the recognition of foreign degrees to overcome the shortage of qualified professionals.

Support for second-language learning

PCH contributes to second language learning in Canada through two new initiatives: bursaries for post-secondary education in French as a second language (Table B-12, Appendix B) and the Teacher Recruitment and Retention Strategy in French Immersion and French Second-Language Programs (Table B-13, Appendix B). Bursary targets for 2019/20 and 2020/21 were achieved, and recruitment and retention strategy targets were exceeded in 2019/20 (Appendix B), but data was not standardized in 2020/21.

According to key stakeholders, the two initiatives combined with the bursaries in French as a second language education and in linguistic reinforcement for health professionals and students contributed to second language learning. Several stakeholders expressed satisfaction with these investments. However, several pointed out that the demand for second-language learning opportunities exceeds the funding available, especially for young people. In addition, the recruitment of teachers remains an issue in some regions, and provincial and territorial governments are reluctant to increase funding for French second-language programs.

Promoting a bilingual Canada through opportunities for youth

PCH helps providing second-language learning opportunities outside of schools through the enhancement of the Explore and Odyssey programs, while the new Mini-Explore initiative promotes French as a second language among youth aged 13 to 15 years old. However, these programs have been greatly affected by the pandemic. For instance, Explore was cancelled in 2020/21. Mini-Explore was implemented in 2019/20 and cancelled in 2020/21 (Tables B-10 and B-11, Appendix B).

Stakeholders believe that several other initiatives (Destination Clic, Young Canada Works, or bilingual internships) enabled progress toward this result and provide opportunities for youth to have life experiences in their second official language. Some stakeholders also stressed the need to further promote these programs, as there is too little awareness of the multitude of opportunities available.

Maintaining English and French as a second language

In addition to the above-mentioned bursaries, PCH contributes to maintaining English and French as a second language through the new $16.5 million funding for the creation of the Mauril application.Footnote 31 Several key stakeholders noted that the results were positive, as the application was installed more than 33,000 times just a few months after its launch in April 2021. However, several stakeholders note that the application is not sufficiently well known and that PCH would benefit by adding content to better target youth.

Support for Statistics Canada’s Language Statistics Section

This enhanced initiative was primarily aimed at sustaining the StatCan Language Statistics Section so that it could continue to provide quality statistical information.Footnote 32 This result has been achieved, and the trajectory is expected to continue until 2023. A total of 22 initiatives per year were to be undertaken, comprising 15 activities and 7 analytical products. These targets were exceeded for the years 2018/19 to 2020/21, and between 82% and 100% of clients expressed satisfaction with the statistical information produced each yearFootnote 33 (Table B-23, Appendix B). StatCan also created two committees on official languages statistics to support the Language Statistics Section:

Medium-term results

The available data is insufficient to assess the contribution to medium-term results since the Action Plan is at the mid-point of its implementation (Figure 4).

Figure 4: medium-term results

Source: Government of Canada, 2020.

Figure 4: medium-term results – text version
Medium-term
Outcome 1

Immigration

  • Francophone communities outside Quebec are strengthened by immigration.

Transmission of language

  • Francophone communities outside Quebec are better equipped to pass on their language to their children.
Outcome 2

Retention

  • Official language minorities have an increased ability to live in their language in their communities.
Outcome 3

English-speaking Canadians outside Quebec have greater access to opportunities to learn French and improve their French skills.

Outcome 4

Statistics Canada produces more analytical documents and articles on official languages and those who use them, as well as an official language.

Nevertheless, there is progress in the desired direction:

As indicated in the previous subsection, the initiatives in place are insufficient to achieve certain expected results beyond 2023. According to several stakeholders, the targets themselves are insufficient to reverse the trends detected in 2016. That said, a better analysis of the contribution to expected results will be possible when more relevant 2021 Census data are available. The information will be relevant to assess trends, including the FOLS, second official language proficiency, the linguistic continuity index, and the number of new arrivals to FAMCs. The analysis of data from the recently published 2021 Census as well as future data should also examine the impact of certain socio-demographic trends (immigration and interprovincial migration rates, population aging, and rural exodus).

According to IRCC data, the admission rate of French-speaking permanent residents to FAMCs is increasing, from 1.83% to 3.61% from 2018/19 to 2020/21 (Table 6), bringing it closer to the target of achieving a 4.4% rate by 2023. However, in 2021/22, this percentage decreased to 2%. This decline in the admission of French-speaking permanent residents from abroad is largely attributed to the COVID-19 pandemic and the closing of borders.

Table 6: admission rate of French-speaking permanent residents outside Quebec, 2018/19 to 2020/21
2018–19 2019–20 2020–21 2021–22
1.83% 2.82% 3.61% 2%

Sources: PCH, 2021c; PCH et al., 2018b.

The many activities and products of the StatCan Language Statistics Section indicate that it is on track to achieve the desired medium-term result of producing “more analytical documents and articles on official languages and those who use them, as well as on official language minorities in Canada”. Stakeholders noted that StatCan strengthened dialogue with communities and other departments and launched two new data collections (an additional block in the 2021 Census and a new survey in 2022), and that there have been improvements in the accessibility of data relevant to official languages online, through mailing lists and workshops.

Long-term results

The Action Plan contributes in a positive way to long-term results, even though they are being influenced by various external factors. Experts and several key informants feel that the results chain as expressed in the Action Plan’s performance measurement framework is not sufficiently clear and consistent. In addition, it is too early to determine the progress of long-term expected results, as the targets are set for 2036 and results can be influenced by several factors other than the Action Plan. In addition, some experts believe that very long-term targets are detrimental to the accountability of stakeholders and thus to progress toward achieving results.

Result 1: The relative weight of Francophones outside Quebec is restored and maintained over the long-term (at 4% by 2036).

In 2017, StatCan projected a decline in the proportion of Canadians living outside Quebec whose first official language spoken is French between 2011 and 2036, from 3.8% to 2.7%.Footnote 34 For its part, recent data from the 2021 Census shows a decline from 3.8% in 2016 to 3.5%,Footnote 35 which could confirm the expected trends.

Additionally, the contribution of immigration to medium- and long-term results is not sufficient to restore or maintain the relative weight of FAMCs at 4% by 2036. Stakeholders and experts expressed similar perceptions. Moreover, according to the experts, measures to increase Francophone immigration are aimed more at reception and initial integration than to long-term retention. Finally, it is too early to learn from the pilot initiative of the 14 Welcoming Francophone Communities, which aims, among other things, to foster a sense of belonging among newcomers in their communities.

Several other factors may influence the relative weight of Francophones outside Quebec other than Francophone immigration. Particularly, stakeholders emphasize access to certain services that support language transmission in minority communities and the rate of exogamous marriages that affect language transmission and retention.

Result 2: The vitality of English-speaking communities in Quebec, particularly in the regions, is sustained.

Initiatives under the Action Plan contribute to the vitality of English-language OLMCs in Quebec. However, experts believe that the expected results for English-speaking Quebecers are not concrete in relation to education, inclusion, and integration into the labour market. The more general socio-demographic trend of population aging and the exodus of young Anglophones to other Canadian provinces have an impact on the vitality of English-language OLMCs in Quebec.

In addition, retention and vitality in English-speaking communities in Quebec depend not only on federal government initiatives, but also heavily on the Government of Quebec. Current and recent federal and provincial policy and legislative frameworks have influenced progress toward this long-term result.

Finally, the sequencing of short-, medium-, and long-term results is inconsistent. In addition, there are no targets for measuring the vitality of English-speaking communities, such as the demographic weight to be achieved, as for FAMCs. The focus is put in “the regions,” since the vitality of English-language OLMCs is much more undermined in areas outside of urban centres like Montréal. However, this intended result seems to systematically exclude the vitality of the English-speaking community in the area of Montréal or other cities.

Result 3: The bilingualism rate among Anglophones outside Quebec is increasing (to 9% by 2036) to increase the individual bilingualism rate of Canadians (to 20% by 2036).

Based on trends from previous censuses, StatCan projected in 2017 that the bilingualism rate for Anglophones outside Quebec would reach 7.6% in 2036.Footnote 36 Despite a decline between the 2006 and 2011 censuses (7.0% to 6.6%), the rate increased between the 2011 and 2016 censuses (from 6.6% to 6.8%).Footnote 37 However, the latest census shows that the bilingualism rate of Anglophones outside Quebec has declined again, from 6.8% in 2016 to 6.5% in 2021.Footnote 38

Key stakeholders and experts consulted felt that the target and initiatives were insufficient to achieve the result as expressed. According to them, the activities of the Action Plan—including the Mauril application, the increase in places in immersion programs and bursary programs—target only a few thousand people per year. As a result, these measures have a limited impact on the bilingualism of Canadians. For example, key stakeholders noted the lack of opportunities to practice a second language after compulsory schooling.

The proportion of bilingual Canadians remains virtually unchanged from 2016, rising from 17.9% to 18%. In addition, this slight increase is due to Quebec. Between 2016 and 2021, the bilingualism rate in Quebec increased from 44.7% to 46.4%, while the bilingualism rate for Canadians outside Quebec decreased from 9.9% to 9.5%Footnote 39 (Table 7).

Table 7: bilingualism rate of Canadians, 2006 to 2021
Regions 2006 2011 2016 2021
Canada 17.4% 17.5% 17.9% 18.0%
Outside Quebec 10.2% 9.8% 9.9% 9.5%
Quebec 40.6% 42.8% 44.7% 46.4%

Source: National Censuses.

Result 4: The public service’s capacity for official languages research is strengthened.

The short- and medium-term results are not intended to develop research capacity beyond StatCan, which is what is intended in the long-term. The only exception is support for the Action Plan to develop research capacity within IRCC through the creation of the Francophone Immigration Policy Hub. However, it is too early to determine the impact of this initiative.

Awareness and coordination

According to the public opinion survey conducted in 2019, most respondents indicated that linguistic duality is a source of cultural enrichment, and that the federal government is effective in protecting both official languages. However, more than half of English-speaking Quebecers did not believe that the federal government was determined to represent and defend the interests of their communities. The increase in Canadians’ awareness of the federal government’s intervention in official languages could not be examined since PCH did not conduct a survey in 2021 (see Section 3.4, Constraints and limits).

Several experts believe that the Action Plan promotes increased awareness and cooperation among departments. Based on documentation and interviews, coordination ensures that partners in the Plan, as planned, report annually and separately on their results and contributions to the overall results of the Action Plan.

In several cases, the Action Plan supports the provinces and territories in the provision of services to OLMCs, particularly in education and health. Key stakeholders and experts noted that the level of collaboration varies depending on the provincial and territorial governments in place and their willingness to support official languages. The literature and case studies confirm that most provinces and territories have legislation and policies in place that help ensure access to provincial services to OLMCs in their language, but there is still room for improvement, and case studies report several services that are not available. In order to standardize the situation and ensure the provision of services to OLMCs, some key stakeholders suggested that clauses be included in federal-provincial-territorial transfers requiring services to the official language minority.

Coordination mechanisms between partner departments and recipients help increase effectiveness. Recipients also have their own committees and issue tables. Finally, core funding provided to community organizations enables them to strengthen and expand their networks and increase partnerships.

4.4. Efficiency

Evaluation questions

Key findings:

Best Practices in the Action Plan

Several best practices are in place, such as the “by and for” community’s model. This approach ensures that OLMC interests are represented in the activities implemented. It also contributed to better third-party management of some components of some of the Action Plan initiatives and the funds associated with them. The Office of the Commissioner of Official Languages of Canada (OCOL) commends “federal institutions and community organizations on their efforts in developing the programs together,” while recognizing that the “by and for” approach represents a long-term effort.Footnote 40 Some partners noted that the collaborative measures of this Plan and the concept of “by and for” communities are excellent practices within official languages programs.Footnote 41

According to the OCOL and key stakeholders, third-party management helps minimize red tape, foster cooperation between communities, and take into account the specific needs of communities. In addition, programs and initiatives are delivered under the terms of existing programs, thus simplifying their administration. Several key stakeholders also noted that the funds are well managed by third parties.

Another good practice was highlighted: the creation of teams or units within federal institutions that focus on official languages, such as the ESDC Official Languages Secretariat, the PHAC Centre of Excellence on OLMC, and the StatCan Advisory Committee on Linguistic Statistics.

The COVID-19 pandemic also identified best practices, such as greater flexibility in program administration. This situation enabled changing the launch dates for activities and while providing flexibility over the use of funding. The literature reviewed confirms that organizational flexibility was also expressed in various ways. In particular, by:

Several partner departments and agencies report that they have increased their internal communications, between different jurisdictions, and with the recipients of the various programs and initiatives in order to improve and strengthen working relationships.Footnote 42 According to the partners, this practice has helped to target better, and more quickly, various issues or to identify the elements most affected by the impact of the pandemic. However, according to the informants interviewed, this flexibility and these practices have not been consistently adopted across PCH and its partners.

Suggestions for improvement

There is very little information about other measures or models to achieve the same results more effectively. However, several key stakeholders provided suggestions for improvements:

As noted above, the variability in the response of the various partner departments to the effects of the pandemic has been criticized. Guidelines could have helped to standardize the emergency measures and funds put in place by the partner departments and agencies of the Action Plan.

In addition, according to the literature review and the analysis of administrative data, two issues affected the evaluation of the Action Plan’s efficiency. First, the financial data required to assess the Action Plan’s efficiency was not available. Second, the data provided by the partners (inputs) are not uniform. In particular, the information provided focuses more on activities and outputs than on expected outcomes and issues that arise. In addition, several partners have not set targets for several objectives. Since both types of data are incomplete or unavailable, this limits the ability to assess the Action Plan’s efficiency.

5. Conclusion

The Action Plan remains relevant to the federal government’s support for official languages. It is well aligned with the trends, needs and priorities identified during its design. The Action Plan also remains well aligned with the provisions of the OLA and the federal government’s commitments in relation to official languages, its priorities, and those of PCH and partner departments. However, the Contraventions Act Fund does not align with the Action Plan’s objectives.

The consultation processes to identify the needs and priorities of the five-year plan are important to ensure its relevance. However, the context and some needs have changed since 2018. These needs should be considered for the last year of the five-year plan or should be part of the context when developing the next plan, if applicable.

Overall, the design and implementation of the Action Plan are adequate. Key stakeholders see the Action Plan as an indispensable tool and believe that there is clear complementarity between its pillars and components. However, the logic of the expected results needs to be reviewed for greater consistency.

Analysis of the effectiveness of the Plan has been limited. Since the evaluation was conducted at the mid-point of the Action Plan, most short-term results have not yet been finalized. Nevertheless, most of them are on track to be achieved by 2023. In addition, medium-term results are moving in the desired direction.

However, the nature and scope of the Plan’s programs and initiatives do not reflect the magnitude of the expected medium- and long-term results. They are insufficient to achieve some of these results, particularly those related to the ability to live in the minority language as well as those related to the bilingualism rate outside Quebec. Finally, the Action Plan initiatives are also insufficient to establish a path toward long-term expected results.

In general, the Action Plan uses efficient means to achieve the intended results and generates leverage for its partners, including through enhanced funding. Finally, several best practices contributing to efficiency were identified. The creation of teams or units within federal institutions that focus on official languages also contributes to efficiency.

Some issues remain in terms of accountability. Mainly, the analysis of the Action Plan’s efficiency was limited by a lack of adequate financial data. In addition, inputs provided to PCH by the Action Plan partners are not consistent, limiting the analysis of effectiveness and evidence-based decision-making. Finally, stakeholders suggested adapting accountability mechanisms to reduce the red tape for recipients and to collect more data on expected outcomes.

6. Recommendations

In light of the findings and conclusions of the evaluation, two recommendations are proposed to address areas requiring special attention and thus improve some components of the Action Plan. These recommendations are particularly important for the development of the next five-year strategy for official languages.

Recommendation 1

The evaluation recommends that the Assistant Deputy Minister, Official Languages, Heritage and Regions review the Plan’s pillars and components to increase the likelihood of achieving expected medium- and long-term results. Particularly those related to the following:

  • increasing the relative weight of Francophone and Acadian minority communities (FAMCs);
  • support for the vitality of the Quebec’s English-speaking communities; and
  • the increase in the bilingualism rate of English-speaking Canadians outside Quebec.

Management response

The program accepts the recommendation.

The mandate letter of the Minister of Official Languages, the Honourable Ginette Petitpas Taylor, confers on her the responsibility of developing a new official languages plan. This new plan is based, among other things, on a consultation process that took place from May 24 to late August 2022. This cross-Canada consultation enabled the general public, official language minority communities, spokesperson organizations, representatives of the provinces and territories, and federal institutions and organizations to express their views on emerging needs in certain areas. The consultation also prioritized and promoted programs and initiatives to better meet the emerging needs of OLMCs and government priorities, as well as the expected results of the next multi-year plan for official languages.

In fact, this broad consultation identified courses of action, including increasing the relative weight of Francophones minority communities and the vitality of English-speaking communities in Quebec and the bilingualism of English-speaking Canadians outside Quebec. Among the themes mentioned that could be considered in the development of the 2023–2028 Action Plan are Francophone immigration, official languages as a tool for economic development, the importance of official languages for Canadian identity and bilingualism, and the leadership of the Government of Canada.

This information will enable the OLB to develop axes that will align not only with the priorities identified by the stakeholders, but also with the recommendations of this evaluation exercise to align our future initiatives with the expected results in the medium and long-term.

Action Plan - Full implementation date: April 2023
Action Plan item(s) Deliverable(s) Implementation date Program sponsor
1.1. Identify the needs of OLMCs 1.1.1. 2022 Report on the Cross-Canada Consultations on Official Languages January 2023 Senior Director, Policy and Research
1.2. Identify innovative pillars, key programs and initiatives 1.2.1. Unveiling of the next federal plan outlining new pillars and investments in official languages April 2023 Senior Director, Policy and Research
1.3. Implementation of the Action Plan 1.3.1. PCH and federal institutions begin funding activities related to the action plan April 2023 Senior Director, Policy and Research

Recommendation 2

The evaluation recommends that the Assistant Deputy Minister, Official Languages, Heritage and Regions identify ways to produce and ensure accountability and the availability of financial data that would help to better assess the effectiveness and efficiency of the Action Plan and any subsequent plans.

Management response

The program accepts the recommendation.

The development of good public policies and programs requires detailed and disaggregated data to which the OLB and its partners have limited access. That said, the federal government is developing a new framework for its data strategy. It is expected to be implemented in the coming years, and Canadian Heritage and all federal institutions will have to align their own data strategies with the federal framework.

The OLB has a long tradition of gathering, sharing and analyzing data related to the vitality of official language communities. The publication of the 2021 Census language data will also provide an opportunity to update a range of profiles and statistical tools that will provide better context for government action. As emphasized in the reform document “English and French: Towards a substantive equality of official languages in Canada,” published in 2021, the government is committed to fostering collaboration between federal institutions and Statistics Canada to collect and extract information on OLMCs, as well as updating statistical and non-statistical data on various indicators of the vitality of official languages. In addition, we will soon have access to data from the post-censal survey of the vitality of official language communities (OLMCs) published by Statistics Canada. This new data will help us better understand the evolving issues facing OLMCs. They will also enable us to track the impact of our initiatives.

In terms of accountability, the new action plan for official languages will align with the new provisions in Bill C-13, which is currently before Parliament. Bill C-13 clarifies the horizontal coordination role of PCH in the legislation. The bill also identifies, as an activity, the development and maintenance of a cross-Canada strategy that sets out the major priorities for official languages, as well as its publication. This could help improve our efficiency and effectiveness because expectations are now clearer for us. If Bill C-13 is passed, the role of the Minister responsible for Official Languages, who would be included in the Act, would be strengthened and would act as the government’s spokesperson for any matter relating to official languages. This government leadership is clearly and strongly expressed and is embodied in ambitious horizontal strategies. Thus, it is expected that the Official Languages Branch will have a better overview of the official languages file and will be able to interact effectively with the various stakeholders. This must be achieved through greater interdepartmental collaboration on official languages, particularly by focusing on greater involvement of the Treasury Board, regional offices, and the Official Languages Centre of Expertise. The OLB will contribute directly to the development of tools and analyses for federal institutions, the strengthening of coordination mechanisms, governance, increased leadership, strengthened internal collaborations (TBS, Justice and other federal institutions), external consultations and dialogues, and the development of regulatory projects. Our objective is to make our accountability even more effective and efficient by using the rich range of data and strategies discussed above, while avoiding weighing down and complicating processes for organizations and institutions.

A management and accountability framework will be developed to support the next Action Plan. This framework will define the most relevant results chain, commitments, and data to be made public to demonstrate program results. Next, data collection will be aligned with the content of the management and accountability framework. This will make our accountability more effective and efficient.

Action Plan - Full implementation date: June 2024
Action Plan item(s) Deliverable(s) Implementation date Program sponsor

2.1. Integration of 2021 Census linguistic data into statistical profiles and tools

Data sharing with federal and community partners

 2.1.1. Production of a statistical dashboard December 2023 Senior Director, Policy and Research
2.2. Review the management/accountability framework to reflect the evaluation’s findings to develop an optimized version of the Accountability Framework for the Action Plan to support the 2023–2028 Plan 2.2.1. Optimized accountability framework for the action plan December 2023 Senior Director, Policy and Research
2.3. Strengthen the horizontal coordination role of the OLB 2.3.1. Establishment of a Part VII Strengthening Centre December 2023 Senior Director, Policy and Research
2.4. Federal institutions share their report on activities funded under the Action Plan on Official Languages 2.4.1. Annual Report on Official Languages (AROL) and other activities related to the accountability framework June 2024 Senior Director, Policy and Research

Appendix A: Evaluation framework

The following evaluation framework presents the questions, indicators, and primary data collection and secondary data analysis methods to be used in carrying out the evaluation.

Question 1: How well does the Action Plan address the needs and aspirations of Canadians?
Indicators Literature review Documentary and administrative data review Case studies Panels of experts Public opinion surveys Key informant interviews
1.1 Evidence that the AP continues to meet a demonstrable need X X X X X X
1.2 Evidence that the AP takes into account the needs of Canadians and the priorities of OLMCs X X X X X X
1.3 Changes observed since the 2013–2018 Roadmap that may have influenced the need for support for official languages X X X X X X
Question 2: How well is the Action Plan aligned with the priorities of the Canadian Heritage, the Action Plan partner departments and the federal government?
Indicators Literature review Documentary and administrative data review Case studies Panels of experts Public opinion surveys Key informant interviews
2.1 Links between the objectives of the AP and federal government priorities - X - - - X
2.2 Links between the objectives of the AP and the strategic objectives of Canadian Heritage and partners - X - - - X

Question 3: To what extent were the following elements considered in the design and implementation of the action plan?

  • Recommendations stemming from the horizontal evaluation of the 2013–2018 Roadmap
  • Gender-Based Analysis Plus (GBA Plus) considerations
Indicators Literature review Documentary and administrative data review Case studies Panels of experts Public opinion surveys Key informant interviews
3.1. Direct links between the recommendations from the previous evaluation, the design of the AP and the implementation of the AP (vs. the previous Roadmap) - X - - - X
3.2 Recommendations that were not considered (not entirely) and the main reasons - X - - - X
3.3 Evidence of the degree to which GBA+ findings that were systematically documented during the development of the AP have been integrated into the design (or modification, as appropriate) of initiatives under the AP - X - - - X
Question 4: Is the specific contribution of the Action Plan as part of all Government of Canada official languages activities clearly identified and understood?
Indicators Literature review Documentary and administrative data review Case studies Panels of experts Public opinion surveys Key informant interviews
4.1 Extent to which the AP mandate is clear - X - X - X
Question 5: Is the logic behind the design of the three-pillar Action Plan and the contribution of the pillars to the overall intended results fully understood and considered appropriate?
Indicators Literature review Documentary and administrative data review Case studies Panels of experts Public opinion surveys Key informant interviews
5.1 Degree of consistency between overall AP initiatives, pillars and results - X - X - X
5.2 Degree of complementarity between the initiatives and the pillars of the AP - X - X - X
Question 6: What is the added value of consolidating federal partners’ initiatives under the Action Plan?
Indicators Literature review Documentary and administrative data review Case studies Panels of experts Public opinion surveys Key informant interviews
6.1 Degree and nature of collaboration between AP initiatives - X - X - X
6.2 Perception of the specific contribution of the AP, beyond that of its programs and initiatives (existing, enhanced and new) - - - X - X
6.3 Relevance of other official languages programs or initiatives that are not part of the Action Plan but could be included based on expressed needs - X - X - X
Question 7: To what extent were the short-term expected results of the Action Plan achieved during the period of 2018/19 to 2021/22?Footnote 43
Indicators Literature review Documentary and administrative data review Case studies Panels of experts Public opinion surveys Key informant interviews

7.1 Evidence of achievement of short-term results, i.e., increased support for:

  1. Francophone immigration
  2. Early childhood
  3. Minority language education
  4. Community voices
  5. Community culture and gathering spaces
  6. Access to justice
  7. Access to health services
  8. Maintaining English and French as a second language
  9. Promoting a bilingual Canada through opportunities for youth
  10. Second language learning
  11. Statistics Canada’s Language Statistics Section
 X X X X X X
7.2 Presence and extent of unanticipated effects (positive and negative) from AP activities X X X X - X
Question 8: To what extent has the Action Plan contributed to progress towards expected results over the medium-term?
Indicators Literature review Documentary and administrative data review Case studies Panels of experts Public opinion surveys Key informant interviews

8.1 Indications of the nature and scope of the contribution of the AP to medium-term results:

  1. Francophone communities outside Quebec are strengthened by immigration.
  2. Francophone communities outside Quebec are better equipped to pass their language on to their children.
  3. Official language minorities are better able to live in their language in their communities.
  4. English-speaking Canadians outside Quebec have greater access to opportunities to learn and develop French.
  5. Statistics Canada is publishing a greater number of articles and analytical documents on official languages and their users, and on official language minorities in Canada.
 X X X X X X
Question 9: To what extent has the Action Plan contributed to progress towards expected results over the long-term?
Indicators Literature review Documentary and administrative data review Case studies Panels of experts Public opinion surveys Key informant interviews

9.1 Indicates of the nature and extent of the contribution of the AP to the four long-term results:

  1. “The relative weight of Francophones outside Quebec is restored and maintained over the long-term (to 4% by 2036).”
  2. “The vitality of English-speaking communities in Quebec is supported, particularly in the regions.”
  3. “The bilingualism rate among Anglophones outside Quebec is increased (to 9% by 2036) to increase the individual bilingualism rate of Canadians (to 20% by 2036).”Footnote 44
  4. “The public service’s capacity for official languages research is strengthened.”Footnote 45
 X X X X - X
Question 10: To what extent have PCH activities contributed to the progress towards the intended results in terms of awareness and coordination?
Indicators Literature review Documentary and administrative data review Case studies Panels of experts Public opinion surveys Key informant interviews

10.1 Percentage of Canadians who agree that federal government’s intervention in official languages helps:

  • Strengthen OLMCs
  • Strengthen access to services
  • Promote a bilingual CanadaFootnote 46
 - X - - X -
10.2 Number of AP partners that report annually and separately on the results of implementing their activities under the Action Plan and their contribution to the overall results of the AP - X - - X -
Question 11: Are the most efficient means being used to achieve the expected results?
Indicators Literature review Documentary and administrative data review Case studies Panels of experts Public opinion surveys Key informant interviews
11.1 Evidence of measures in place to coordinate activities more effectively and manage Action Plan funds more economically - X - - - X
11.2 Evidence that investments were leveraged - X - - - X
Question 12: Are there other ways to achieve the same results more effectively?
Indicators Literature review Documentary and administrative data review Case studies Panels of experts Public opinion surveys Key informant interviews
12.1 Evidence of lessons learned and good practices identified by federal partners X X - X - X
12.2 Other innovative models or approaches used by horizontal initiatives that are relevant given the nature of the AP X X - X - X

Appendix B: achievement of specific short-term targets by program and initiative

PCH initiatives

Table B-1: civic community school — community partnerships for schools
Expected Results Performance Indicators 2018–19 2019–20 2020–21
Francophone minority students have the opportunity to reflect on their identity as members of the Francophone community Targets N/A 600 students who participated in a CCS project funded by PCH. 1,337 students who participated.
Objectives met N/A 5,863 students who participated. [No input available for 2020–2021.]
Community organizations have the opportunity to engage students and schools in their community. Targets N/A 60 CCS projects undertaken with PCH support. 125 Francophone minority schools served 518 CCS projects undertaken. 518 schools affected.
Objectives met N/A 40 CCS projects undertaken with PCH support. 371 Francophone minority schools served 743 schools affected.

Sources: Canadian Heritage, 2019, 2021; PCH et al., 2018d.

Table B-2: teacher recruitment and retention strategies for French-language minority schools
Expected Results Performance Indicators 2018–19 2019–20 2020–21
Funding for initiatives to recruit and retain teachers in Francophone minority schools Targets N/A At least 4 P/Ts who benefit from an initiative to recruit or retain teachers in Francophone minority schools. 13 P/Ts who benefit from a recruitment or retention initiative.
Objectives met N/A 9 P/Ts and 5 cross-Canada projects. 10 P/Ts and 5 pan-Canadian projects
Decreased percentage of vacant teaching positions in Francophone minority schools Targets N/A 85 % of initiatives with measurable impact on the ground (by 2023) Ibid.
Objectives met N/A N/A [No input available for 2020/21]

Sources: Canadian Heritage, 2019, 2021; PCH et al., 2018d.

Table B-3: strengthening strategic investment capacity
Expected Results Performance Indicators 2018–19 2019–20 2020–21
Official Language Minority Communities (OLMCs) are thriving through major projects and strategic initiatives Targets 13 projects per year (3 additional strategic projects funded per year). Ibid. Ibid.
Objectives met Six strategic projects. Two strategic projects. Six strategic projects.

Sources: PCH et al., 2018d; PCH, 2019b, 2021c.

Table B-4: Capacity building of community media and radio — strategic support
Expected Results Performance Indicators 2018–19 2019–20 2020–21
Community radios and newspapers, including those operating in remote areas, are supported in their efforts to achieve business viability Targets 95 community radios and newspapers supported through service organizations) by 2023. Ibid. Ibid.
Objectives met 15 radio stations and newspapers and 1 planning project 36 radio stations and newspapers. 33 radio station and newspaper projects

Sources: PCH et al., 2018d; PCH, 2019b, 2021c.

Table B-5: strengthening community media and radio — ensuring succession
Expected Results Performance Indicators 2018–19 2019–20 2020–21
Participants in the YCWBCEF program gain paid work experience related to their field of study, in the communications sector, in an official languages environment Targets 110 interns placed in minority community newspapers and radio stations by 2023 (20 per year on-going from 2023/24). Ibid. Ibid.
Objectives met 58 interns placed. 18 interns placed. 18 interns placed.
The minority media sector (radio and newspapers) has access to young professionals who have studied in the communications field Targets 110 newspapers and radio stations in minority communities welcome an intern who has studied in a communications-related field by 2023 (20 per year on-going from 2023/24). Ibid. Ibid.
Objectives met 58 newspapers and radio stations. 18 newspapers and radio stations [No input available for 2020/21]

Sources: PCH et al., 2018d; PCH, 2019b, 2021c.

Table B-6: funding for English-speaking communities in Quebec
Expected Results Performance Indicators 2018–19 2019–20 2020–21
Increase in the number of funded initiatives and projects for English-speaking communities in Quebec, particularly in the regions Targets 13 funded projects and initiatives per year from 2019/20. Ibid. Ibid.
Objectives met N/A 25 projects. [No input available for 2020/21]
Improving Anglophones’ perception of the vitality of their communities Targets N/A N/A N/A
Objectives met N/A N/A [No input available for 2020/21]

Sources: PCH et al., 2018d; PCH, 2019b, 2021c.

Table B-7: support for community spaces — infrastructure
Expected Results Performance Indicators 2018–19 2019–20 2020–21
Increase in the offer of educational and community infrastructure for OLMCs Targets 7 new educational and community infrastructure projects. 12 OLMCs receiving investments for educational and community infrastructure projects by 2023. 20 new projects by 2023. 12 OLMCs receiving investments for educational and community infrastructure projects by 2023. Ibid.
Objectives met 13 projects and 10 OLMCs. 20 new projects and 15 OLMCs. 5 new projects and 5 OLMCs.

Sources: PCH et al., 2018d; PCH, 2019b, 2021c.

Table B-8: enhancement of the Community Cultural Action fund
Expected Results Performance Indicators 2018–19 2019–20 2020–21
Increase in cultural, heritage, and artistic activity within official language minority communities Targets Approximately 40 cultural projects funded per year. 10 cultural projects funded per year. Approximately 10 cultural projects funded per year.
Objectives met 2 preparatory activities. 10 cultural projects. [No input available for 2020–2021.]
Increase in the number of cultural activities for minority schools (set up by cultural and community organizations and funded through microgrants) Targets N/A Up to 1,000 activities per year (up to 4,000 activities from 2019/20 to 2022/23). 1,000 language minority schools that are partners in a cultural activity by 2023. Idem.
Objectives met N/A

PassepART: 393 activities. ArtistsInspire Grants: 137 activities.

822 schools.

 PassepART: 417 activities ArtistsInspire Grants: 137 activities in 740 schools

Sources: PCH et al., 2018d; PCH, 2019b, 2021c.

Table B-9: increased support for maintaining French and English as a second language
Expected Results Performance Indicators 2018–19 2019–20 2020–21
Canadians access the Canadian Program for Learning English and French as Second Languages Targets 1.2 M Canadians (400,000 Canadians/year) enrol in the Program. Ibid. Ibid.
Objectives met N/A Agreement signed with CBC/Radio-Canada. [No input available for 2020/21]
Canadians are improving their skills in their second official language as a result of the Program, through a fully Canadian experience Targets 120,000 Canadians (40,000/year) having increased by at least one level since the classification test or self-assessment by 2023. Ibid. Ibid.
Objectives met N/A N/A [No input available for 2020/21]

Sources: PCH et al., 2018d; PCH, 2019b, 2021c.

Table B-10: Enhancement of the Explore second-language program
Expected Results Performance Indicators 2018–19 2019–20 2020–21
Maintain the annual number of participants in the Explore program at 7,045 Targets Maintain at 7,045 per year. Maintained at 6,056 participants. Except for 2020/21 due to cancellation of sessions.
Objectives met 6,056 participants. 5,614 participants. [No input available for 2020/21]
Maintain the number of participating institutions at 38 Targets 38 participating institutions. Ibid. Ibid.
Objectives met 38 participating institutions. Ibid. [No input available for 2020/21]
Participants report better knowledge of their second language after participating in the Explore program. Targets 68% of participants who improve their second language skills (from a low pre-program conversation level to a medium or higher post-program level). 61% of participants. 68% of participants.
Objectives met 61%. [No data for this indicator.] [No input available for 2020/21]

Sources: PCH et al., 2018d; PCH, 2019b, 2021c.

Table B-11: enhancement of the Odyssey official-languages monitor program
Expected Results Performance Indicators 2018–19 2019–20 2020–21
Increase in the number of students who have the opportunity to improve their language skills through contact with an Odyssey program monitor Targets N/A N/A Approximately 42,000 students.
Objectives met N/A Nearly 40,000 students. [No input available for 2020/21]
Increase in the number of young adults participating in the Odyssey program Targets 320 annual participants in the Odyssey program, whose participation is funded by PCH. 301 annual participants. 340 annual participants.
Objectives met 245 participants. 312 participants. 365 participants.
Maintenance of the satisfaction of Odyssey program monitors Targets Maintain the proportion of respondents who say they are satisfied or very satisfied with their salary at least 90% by 2023. Ibid. Ibid.
Objectives met 44% said they were satisfied or very satisfied.

84% of respondents said they were satisfied or very satisfied.

87% of respondents indicated that they were also interested or more interested in pursuing a career in the education field in the future following their Odyssey experience.

 [No input available for 2020/21]

Sources: PCH et al., 2018d; PCH, 2019b, 2021c.

Table B-12: Bursaries for post-secondary education in French as a second language
Expected Results Performance Indicators 2018–19 2019–20 2020–21
Increase in English-speaking youth who pursue post-secondary education in their second official language (French) Targets N/A 500 young people whose first official language spoken is English who receive a post-secondary bursary from this program to pursue their studies in French. 850 young people.
Objectives met N/A 850 young people. 850 young people.

Sources: PCH et al., 2018d; PCH, 2019b, 2021c.

Table B-13: strategy for recruiting and retaining teachers in French immersion and French second language programs
Expected Results Performance Indicators 2018–19 2019–20 2020–21
Funding of initiatives to recruit and retain teachers in French immersion and French second language programs Targets N/A At least 4 P/Ts who benefit from an initiative to recruit or retain French immersion and French second language teachers. 13 P/Ts by 2023.
Objectives met N/A 9 P/Ts and 5 pan-Canadian projects. 31 recruitment projects
Decreased percentage of vacant teacher positions in French immersion and French second language programs Targets 85 % of initiatives with measurable impact on the ground by 2023. Ibid. Ibid.
Objectives met N/A N/A [No input available for 2020/21]

Sources: PCH et al., 2018d; PCH, 2019b, 2021c.

IRCC initiatives

Table B-14: francophone immigration — francophone integration pathway
Expected Results Performance Indicators 2018–19 2019–20 2020–21
Capacity building in the Francophone settlement sector Targets More than 350 French-speaking stakeholders and service providers participate in summits in Francophone settlements. 30 to 50 Francophone service providers have access to opportunities to share best practices, innovative ideas in the provision of settlement services, and training in French tailored to their needs. 50 to 70 providers.
Objectives met More than 350 stakeholders participated in the various events organized between the IRCC and FMCs. Increase in the number of providers from 50 to 70. The number of providers increased from 50 to 80. Four new requirements were included in all contribution agreements to improve referral to Francophone organizations. Since April 2020, eight (8) national projects in support of capacity building in the Francophone settlement sector have been funded to make training, tools, and the sharing of information and best practices in French available to Francophone service providers and their settlement workers.
Welcoming Francophone Communities Initiative Targets At least 10 communities are identified and implement local advisory councils and community plans. At least 10 community advisory councils bring together a variety of players, community representatives, and Francophone stakeholders to implement the Welcoming Francophone Communities Initiative. The 14 communities selected to pilot the initiative are implementing the activities in their community plans.
Objectives met 14 communities and regions were selected. The 14 selected communities and regions have established local community advisory councils and developed community business plans. The 14 selected communities and regions have begun to implement the activities in their community plans.
Language training in support of the Francophone integration pathway Targets At least eight service providers by 2023. Funding of 7 Francophone organizations to provide language training services. Assist approximately 500 clients per year who need to improve their knowledge of both official languages in order to better settle in FMCs. At least eight Francophone service providers will receive funding. Assist approximately 500 clients per year who need to improve their knowledge of both official languages in order to better settle in FMCs.
Objectives met Increased funding for seven Francophone service providers. The target of 500 clients was not achieved. 182 clients across Canada received language training services. Seven organizations were funded to implement projects to strengthen the capacity of Francophone communities. A total of 552 clients across Canada received services.
A network of settlement agents in support of the Francophone integration process Targets Hiring of two settlement agents. The two program officers hired in 2018/19 will continue to oversee the implementation of the integration pathway. Hiring of four new settlement agents for the Regions. The two program officers hired in 2018/19 will continue to oversee the implementation of the integration pathway.
Objectives met Hiring of two bilingual program officers. The two program officers hired in 2018/19 continued to oversee the implementation of the Francophone integration pathway. IRCC has created a new team to support the operationalization of the Francophone integration pathway. This new team was created with the two existing positions created in 2018/19, as well as four new positions.

Sources: IRCC, 2019b, 2020c, 2021b.

Table B-15: francophone immigration – cooperation and accountability
Expected Results Performance Indicators 2018–19 2019–20 2020–21
Improved coordination of internal and external partners’ efforts in official languages and Francophone immigration Targets

Three initiatives by the fourth quarter of 2018/19.

Review by the fourth quarter of 2018/19 the three mechanisms used to ensure coordination between internal and external partners. Develop and/or update three tools that describe responsibility within the ministry on Francophone immigration and official languages by the fourth quarter of 2018.

 [No results expected for 2019/20.] [No results expected for 2020/21.]
Objectives met

The Francophone immigration strategy that will enable coordination and collaboration between IRCC and its federal and P/T partners. Participation in the OCOL’s Official Language Maturity Model (OLMM) pilot project.

New terms of reference for the IRCC–Francophone Minority Communities Committee, for IRCC’s Executive Committee on Official Languages, and for the FPT Working Group on Francophone immigration.

Development of three tools: Governance framework and RACI matrix (“Responsible,” “Accountable,” “Consulted,” “Informed”), interim indicators to measure multilateral progress as soon as the pillars of the Action Plan are implemented, and performance indicators established for the Action Plan and refugee resettlement and integration.

 [No results expected for 2019/20.] [No expected results for 2020/21.]
Increased collaboration on Francophone immigration Targets At least three departmental announcements, press releases, and calls for proposals per year on immigration. Three initiatives contributing to Francophone immigration per year. Ibid. Ibid.
Objectives met

Among other things, announced investments planned for the Francophone integration pathway (2018), announced the IRCC’s Francophone Immigration Strategy (2019), call for proposals for funding the Settlement Program and the Resettlement Assistance Program (2019).

Three initiatives contributing to Francophone immigration per year.

Among other things, the Canada–Ontario Immigration Agreement — Appendix C: French-speaking immigrants (2018), awareness tour in several regional offices in AB, NS, BC, and ON, and two multilateral FPT initiatives.

19 press releases dealing with immigration, 21 other communications products.

Continued collaboration with P/Ts through the FPT Forum of Ministers Responsible for Immigration, and collaboration with the Ministerial Conference on the Canadian Francophonie (MCCF) throughout the year to advance Francophone immigration priorities.

Several announcements including the increase of 15 to 25 points for Francophone candidates and 30 to 50 points for bilingual candidates in the Express Entry system, and the announcement of a plan to continue the growth of the economy and the creation of jobs for the middle class through increases in the number of newcomers. Launch of a national call for proposals to improve existing support services before and after the arrival of private respondents and to ensure that refugees are aware of the assistance offered to them.

Three initiatives: collaboration with other federal institutions in the development of the Government of Canada's vision for the modernization of the Official Languages Act (OLA); collaboration with P/Ts for Francophone immigration; various meetings with community organizations such as the FCFA.
Improved efforts in reporting on and monitoring of Francophone immigration through internal partners Targets Develop and maintain three tools that collect data on Francophone immigrants and that aim to increase the systematic presentation of reports on Francophone immigration. Ibid. Ibid.
Objectives met Quarterly dashboard on Francophone migration outside Quebec. Performance information profile for IRCC’s Francophone Immigration Strategy. Development of a Guide to Official Languages Impact Guide for the preparation of Memoranda to Cabinet. Quarterly dashboard on Francophone migration outside Quebec. Endorsement of the Performance Information Profile for IRCC’s Francophone Immigration Strategy. Use of a Guide to Official Languages Impact Guide for the preparation of Memoranda to Cabinet to ensure an official languages lens. Quarterly dashboard on migration of Francophones outside Quebec, for internal use only. Two infographic documents (dashboards) on migration of Francophones outside Quebec, for outreach. The first stocktaking of the IRCC’s Francophone Immigration Strategy, based on indicators from its performance information profile, was presented to senior management in 2020. Use of the Guide on Official Languages Impacts for Memoranda to Cabinet to ensure an official languages lens.

Sources: IRCC, 2019 a, 2020b, 2021a.

ESDC initiatives

Table B-16: support for early childhood development — professional training and capacity building
Expected Results Performance Indicators 2018–19 2019–20 2020–21
Increase in the number of multi-sector partnerships for training and capacity-building of early childhood educators in Francophone OLMCs Targets N/A N/A N/A
Objectives met N/A 24 contribution agreements. The 24 contribution agreements are still in progress.
Increase in the number of resources for training and capacity-building of early childhood educators in Francophone OLMCs Targets N/A N/A N/A
Objectives met N/A 24 contribution agreements. The 24 contribution agreements are still in progress.

Sources: ESDC, 2019b, 2020e; PCH et al., 2018d.

Table B-17: support for early childhood development — support for the opening of day care centres and childcare services
Expected Results Performance Indicators 2018–19 2019–20 2020–21
OLMCs have better resources and are better served. Quality tools and training to expand day care centres and early childhood services in OLMCs are available to OLMC entrepreneurs. Targets For every dollar invested by the Enabling Fund, partners not funded by the EF invest $2 (non-profit groups, private sector organizations, and other government partners). Ibid.

202 new jobs created in the early childhood sector in Francophone minority communities.

905 new spaces created in day care centres in Francophone minority communities.
Objectives met Results unavailable. The initiative began in 2019.

Agreement signed with RDÉE Canada to coordinate and distribute funding to OLMC organizations.

RDÉE Canada has signed 12 sub-agreements with service providers to implement projects.

RDÉE Canada entered into 28 subsidiary agreements with organizations in 10 provinces and territories.

For example, in Manitoba, 77 new spaces in day care centres and 17 jobs were created in 2020/21.

Sources: ESDC, 2019 a, 2020d, 2021a, 2021c; PCH et al., 2018d.

HC initiatives

Table B-18: Enhancement of the OLHP — Strengthening the capacity of Anglophone health networks
Expected Results Performance Indicators 2018–19 2019–20 2020–21
Health partners are supported and equipped by community health networks to serve OLMCs Targets 75% of health professionals and reception staff who report that they are supported and equipped by community health networks to have the knowledge and skills required to work in OLMCs by October 2021. Ibid. Ibid.
Objectives met [Limited data: The first year saw the start of activities to establish new networks and satellites.] 88% of the 92 health partners surveyed indicated that they were supported with knowledge of community needs to serve OLMCs. [No data available for 2020/21 because this survey is conducted every two years, thus in 2021/22.]
Health partners have the knowledge, skills, and support needed to make informed decisions and to take action to meet the needs of OLMCs Targets

75% of health partners report that they are better equipped in terms of knowledge, skills, and support (by October 2021).

75% of health partners report that community health networks support them and equip them with knowledge, skills, and support to inform their decisions and actions on the needs of OLMCs.

 75% of health partners who say that community health networks supported and equipped them to improve health services to meet the needs of OLMCs. Ibid.
Objectives met [Limited data: The first year saw the start of activities to establish new networks and satellites.] 96% of the 223 health partners surveyed said they were supported. [No data available for 2020/21 because this survey is conducted every two years. This data will be available in 2021/22.]

Sources: PCH et al., 2018d; HC, 2019c, 2020c.

Table B-19: enhancement of the OLHP — innovative projects
Expected Results Performance Indicators 2018–19 2019–20 2020–21
Health partners have the knowledge, skills, and support needed to make informed decisions and to take action to meet the needs of OLMCs Targets 75% of health partners report that they are better equipped in terms of knowledge, skills, and support (by October 2021). Ibid. Ibid.
Objectives met [Data unavailable, as innovative projects only began in 2019/20.] 88% of the 92 health partners surveyed indicated that they were supported overall with knowledge of the community needs. [No data available for 2020/21 because this survey is conducted every two years. This data will be available in 2021/22.]

Sources: PCH et al., 2018c; HC, 2019b, 2020b.

Table B-20: enhancement of the OLHP — Training and retention of human resources in health (HC)
Expected Results Performance Indicators 2018–19 2019–20 2020–21
Health professionals and trained reception staff have the knowledge and skills to serve OLMCs Targets

65% of French-language post-secondary graduates funded each year for all institutions and 90% of funded health professionals and reception staff who have completed language training who report having acquired:

(a) the knowledge and (b) the skills required to work in OLMCs each year for all institutions.

 Ibid. Ibid.
Objectives met Addition of five postsecondary health training institutions. Of the 11 institutions offering health training in French: 741 additional graduates. Of these graduates, 98% of those surveyed said they had acquired the knowledge and skills needed to work in OLMCs. Of the 16 institutions offering health training in French: 712 additional graduates. Of these graduates, 96% of those surveyed said they had acquired the knowledge and skills needed to work in OLMCs. Of the 16 institutions offering health training in French: 674 additional graduates. Of these graduates, 91% of those surveyed said they had acquired the knowledge and skills needed to work in OLMCs.

Sources: HC, 2019 a, 2020c.

JUS initiatives

Table B-21: enhancement of the access to justice in both official languages support fund (JUS)
Expected Results Performance Indicators 2018–19 2019–20 2020–21
Increase in the legal information available to OLMCs in both official languages Targets Increased representation in five new currently underserved communities over five years. Ibid. Ibid.
Objectives met In 2018/19, seven projects were dedicated to legal information for five new underserved communities: (1) The Francophone community of Yukon, (2) the racialized Anglophone community of Montréal, (3) the racialized Francophone community of Greater Toronto, (4) the Francophone community of the Durham region of Ontario, and (5) the Francophone community of Windsor in Ontario. In 2019/20, seven projects were dedicated to legal information for seven underserved communities, including two new communities: (1) The Francophone community of the Northwest Territories and (2) the Anglophone community of the Côte-Nord region of Quebec. In 2020/21, seven projects were dedicated to legal information for seven underserved communities, including a new community: (1) the Francophone community of Newfoundland and Labrador.
Increased training for professionals in the justice system Targets Increase in the number of bilingual professionals participating in training programs by 10% per year in the baseline (330). Ibid. Ibid.
Objectives met 310 professionals. 351 professionals. 535 professionals.
Funding is available for translation of legal texts and judgments Targets 125 judgments translated each year. Ibid. Ibid.
Objectives met N/A 122 judgments translated. 134 judgments translated.

Sources: JUS, 2019, 2020c, 2021a; PCH et al., 2018d.

PHAC initiatives

Table B-22: enhanced early childhood health promotion programming
Expected Results Performance Indicators 2018–19 2019–20 2020–21
Program participants acquire resources, knowledge, and skills Targets N/A N/A 45 projects. 3,170 people (300 men, 800 women, 70 pregnant women, 2,000 children)
Objectives met N/A 40 projects. 2,764 recipients (204 men, 780 women, 65 pregnant women, and 1,715 children). 51 projects. 10,564 recipients (5,145 parents — including 1,110 men and 907 pregnant women, and 5,419 children).

Sources: PHAC, 2019, 2020c, 2021; PCH et al., 2018d.

Statistics Canada initiatives

Table B-23: increased support for Statistics Canada’s language statistics section
Expected Results Performance Indicators 2018–19 2019–20 2020–21
Statistical information is of high quality Targets 15 activities per year (meetings with communities, committees, participation in seminars and research forums, etc.). 7 analytical products per year. Percentage of clients satisfied with statistical information produced (not determined). 15 activities per year. 7 analytical products per year. 80% of clients satisfied with the statistical information produced. 15 activities per year. 7 analytical products per year 83% of clients satisfied.
Objectives met 17 activities. 9 analytical products. 100% of clients satisfied with the statistical information produced. 16 activities. 18 analytical products. 82% of clients satisfied with the statistical information produced. 15 activities. 12 analytical products. 86% of clients were satisfied with the statistical information produced.

Sources: PCH et al., 2018d; StatCan, 2019 a, 2020b, 2021a.

Joint initiatives (PCH, ESDC, HC, and JUS)

Table B-24: increase in core funding for community organizations
Department Performance Indicators 2018–19 2019–20 2020–21
PCH Targets

287 organizations for which funding increased by 20%

20 new organizations funded by 2023.

 Ibid. Ibid.
Objectives met

276 organizations for which funding increased by 20%

0 new organizations funded

160 organizations for which funding increased by 20%

29 new organizations funded

 Four new organizations funded
ESDC Targets 14 organizations for which funding increased. Ibid. Ibid.
Objectives met 14 organizations for which funding increased. Ibid. Ibid.
HC Targets

$2.2M for 2018–2023 for the SSF

$1.5M for 2018–2023 with the CHSSN

$700,000 for 2018–2023 for the ACUFC–CNFS Secretariat

 Ibid. Ibid.
Objectives met

$2.2M for 2018–2023 for the SSF

$1.5M for 2018–2023 with the CHSSN

$700,000 for 2018–2023 for the ACUFC–CNFS Secretariat.

 Ibid. Ibid.
JUS Targets

100% of the core funding was used to stabilize recipients financially.

Contribution agreement for core funding with at least one organization/recipient per province/territory each year.

 Ibid. Ibid.
Achievement of objectives 100% of the funds provided were used to stabilize recipients financially. Contribution agreement with 10 provincial/territorial organizations and 1 national organization. 100% of the funds provided were used to stabilize recipients financially. Contribution agreement with 11 provincial/territorial organizations and 1 national organization. 100% of the funds provided were used to stabilize recipients financially. Contribution agreement with 11 provincial/territorial organizations and 1 national organization.

Sources: ESDC, 2019c, 2020g; Justice Canada, 2019, 2020a; PCH et al., 2018d; HC, 2019c, 2020c.

Appendix C: bibliography

ESDC. (2019a). Inputs for 2018–2019 —Support for early childhood development—Vocational training and capacity building.

ESDC. (2019b). Inputs for 2018–2019—Enabling Fund for OLMCs (skills and employment).

ESDC. (2020a). Inputs for 2019–2020— Support for early childhood development—Professional training and capacity building.

ESDC. (2020b). Inputs for 2019–2020—Enabling Fund for OLMCs (skills and employment).

ESDC. (2021). Mid-term review exercise of the Action Plan for Official Languages 2018–2023: Questionnaire for Federal Partners - Employment and Social Development Canada.

ESDC. (2022). Evaluation of the Enabling Fund for Official Language Minority Communities.

Government of Canada. (2018). Action Plan for Official Languages 2018–2023: Investing in Our Future

Government of Canada. (2020). Action Plan for Official Languages 2018–2023 – Accountability Framework.

HC. (2019a). Inputs for 2018–2019—Enhancement of the Official Languages Health Contribution Program—Training and retention of human resources in health.

HC. (2019b). Inputs for 2018–2019—Official Languages Health Program (OLHP) (networks, training for health professionals and projects to improve access to health services), Increase in core funding for community organizations.

HC. (2020a). Inputs for 2019–2020—Enhancement of the Official Languages Health Contribution Program —Innovative projects

HC. (2020b). Inputs for 2019–2020—Official Languages Health Program (OLHP) (networks, training for health professionals and projects to improve access to health services), Increase in core funding for community organizations.

HC. (2021). 2018-2023 Action Plan for Official Languages Mid-Term Exercie: Questionnaire for Federal Partners — Health Canada

Houle, R. and Corbeil, J.-P. (2017). Language projections for Canada, 2011 to 2036. Statistics Canada, Government of Canada (PDF format)

IRCC. (2017). Evaluation of the Immigration to OLMC Initiative.

IRCC. (2019a). Inputs for 2018–2019—Francophone immigration—Cooperation and Accountability.

IRCC. (2019b). Inputs for 2018–2019—Francophone immigration—Francophone integration pathway.

IRCC. (2020a). Inputs for 2019–2020—Francophone immigration—Collaboration and Accountability.

IRCC. (2020b). Inputs for 2019–2020—Francophone immigration—Francophone integration pathway.

IRCC. (2021a). Inputs for 2020–2021— Francophone immigration— Francophone integration pathway.

IRCC. (2021b). 2018-2023 Action Plan For Official Languages Mid-Term Exercise: Questionnaire for Federal Partners

IRCC. (2021c). IRCC’s Departmental Results Report 2019–2020.

JUS. (2019). Inputs for 2018–2019—Contraventions Act Fund, Enhancement of the Access to Justice in Both Official Languages Support Fund, Core Funding for Community Organizations.

JUS. (2020a). Inputs for 2019–2020— Core funding for community organizations.

JUS. (2020b). Inputs pour 2019–2020— Contraventions Act Fund, Enhancement of the Access to Justice in Both Official Languages Support Fund, Core Funding for Community Organizations.

JUS. (2021a). Inputs for 2020–2021—Enhancement of the Access to Justice in Both Official Languages Support Fund.

JUS. (2021b). 2018-2023 Action Plan For Official Languages Mid-Term Exercise: Questionnaire for Federal Partners – Department of Justice.

JUS. (2021c). Evaluation of the Contraventions Act Program

PCH. (2018). Performance Information Profile.

PCH. (2019a). Inputs for 2018–2019—Development of Official-Language Communities Program, Enhancement of Official Languages Program.

PCH. (2019b). Inputs for 2018–2019—Development of Official-Language Communities Program, Enhancement of Official Languages Program.

PCH. (2019c). Statistics on official languages in Canada.

PCH. (2021a). Bilan de mi-parcours : Plan d’action pour les langues officielles 2018–2023.

PCH. (2021b). Annual Report on Official Languages 2019–2020.

PCH. (2022). Appendix 1: 2020–2021 Summary of government investments in official languages

PCH, ESDC, Justice Canada, Health Canada, PHAC, StatCan, & IRCC. (2018a). Treasury Board Submission: Funding for the Action Plan for Official Languages – 2018–2023

PCH, ESDC, Justice Canada, Health Canada, PHAC, StatCan, & IRCC. (2018b). Treasury Board Submission—Appendix B: Delivery and Expected Results: Deputy Head Commitment.

PCH, ESDC, Justice Canada, Health Canada, PHAC, StatCan, & IRCC. (2018c). Treasury Board Submission—Appendix F: Request by activity.

PHAC. (2021). 2018-2023 Action Plan For Official Languages Mid-Term Exercise: Questionnaire for Federal Partners — Public Health Agency of Canada.

OCOL. (2018). 2017–2018 Annual Report (PDF format).

StatCan. (2019). Inputs for 2018–2019—Additional, continued support to the language statistics section.

StatCan. (2020). Inputs for 2019–2020—Additional, continued support to the language statistics section.

StatCan. (2021). Inputs for 2020–2021—Additional, continued support to the language statistics section.

StatCan. (2022a). Mother tongue by first official language spoken and knowledge of official languages: Canada, provinces and territories, census divisions and census subdivisions, Statistics Canada Catalogue no. 98-10-0170-01. Ottawa. Released on August 17, 2022.

StatCan. (2022b). Census Profile, 2021 Census of Population, Statistics Canada Catalogue no. 98-316-X2021001. Ottawa. Released on August 17, 2022.

© His Majesty the King in Right of Canada, represented by the Minister of Canadian Heritage, 2023
Catalogue No.: CH7-68/1-2023E-PDF
ISBN: 978-0-660-47779-4

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