Evaluation of the Liaison Function – Final Report

Introduction

This report presents the final report of the 2016 evaluation of OCOL’s liaison function.

Purpose

The purpose of this evaluation was to provide an assessment of the relevance and performance of activities undertaken by the liaison function.

Methodology

The evaluation employed the following methodologies: a review of program documents and literature; an assessment of regional minority official language rights organizations’ websites; 44 interview consultations with officials from:  OCOL; federal institutions; community organizations; and, provincial official languages organizations.

Evaluation Findings

Conclusions

The evaluation has confirmed the continued relevance of the OCOL liaison function. The function is delivering important results that advance the mandate of the Commissioner. The evaluation found that the resources used to deliver the liaison function are used in a cost-effective manner.

The evaluation team noted that the OCOL officials delivering the liaison function demonstrated a high level of commitment to the value and success of the liaison function.

Recommendations

The evaluation presents three recommendations in the areas of: completing a plan for a performance measurement strategy for the liaison function; preparing a formal, consolidated written briefing to the Commissioner summarizing the intelligence gained from the liaison function; and, preparing a multi-year liaison plan for each region to ensure liaison coverage with key regional minority official language organizations.

Multi-year liaison plan for each region:

Introduction

This report presents the findings and recommendations of the 2016 evaluation of OCOL’s liaison function.

The report outlines the evaluation purpose, scope and methods used in conducting the evaluation, as well as presenting the evaluation findings in relation to the Core Evaluation issues that were agreed to during the planning phase of the evaluation and include the continued relevance of the liaison function, and its performance in terms of the results achieved, and overall cost-effectiveness.

A final section provides a summary of the evaluation findings and recommendations. Appendices are included which present the detailed questions considered during this evaluation, and a logic model for the liaison function that was prepared for the purpose of this evaluation.

Purpose, Scope, Methodology & Data Limitations

Relevance

The liaison function is clearly within the legal mandate and duties of the Commissioner, according to Section 56 (1) of the Official Languages Act.

It is the duty of the Commissioner to take all actions and measures within the authority of the Commissioner with a view to ensuring recognition of the status of each of the official languages and compliance with the spirit and intent of this Act in the administration of the affairs of federal institutions, including any of their activities relating to the advancement of English and French in Canadian society.

Lack of awareness of rights and obligations: There is a continued need for the liaison function at OCOL. Interviews identified a lack of awareness among stakeholder groups regarding the rights and obligations of the public and federal institutions with regard to the Official Languages Act. Natural and ongoing turnover of officials at community organizations and at federal institutions makes this a continuous need.

Need for visible support to communities: Interviews with officials from community organizations noted that there is a need for visible support and tools to facilitate their work in communities to promote linguistic duality and services to the minority official language community. Visible support from OCOL is needed to build confidence in the minority communities and to encourage the development of these communities across Canada. Officials from community organizations supporting core French or English curriculum and immersion programs indicated in interviews that they have a need for data about linguistic duality in Canada, and visible Federal support and tools for this work.

Ongoing need for information about OL at federal institutions: Interviews with officials from Federal institutions noted that there was a lack of awareness regarding the OL rights and obligations of federal institutions. Interviewees stated that this need is ongoing due to the natural attrition, retirements, and turnover of staff in federal institutions. Interviewees noted a need for expert information and tools to operate a bilingual workplace, and to meet the obligations of federal institutions with regard to the Official Languages Act. Interviews with official language coordinators at federal institutions identified a continued need for information, advice and tools on the promotion of Official Languages. This is required in order to respond to a lack of awareness among officials from federal organizations regarding their rights and responsibilities in relation to Official Languages and also in order to facilitate and support federal organizations in going beyond the minimum requirements of the Act.

Need for cost-effective local presence for planning and implementation of major sporting or cultural events: When there are major sporting or cultural events in a region, such as the Olympics, the Pan Am / Parapan Am Games, the Canada Games, Semaine nationale de la francophonie, etc., there is a need for the specialized OL expertise regarding service to the public and obligations under the Official Languages Act. OCOL provides advice for the planning and implementation of these events. In addition, there is a need for information regarding past experience at similar events, and the tools that have been used with success in past. 

Local presence is required for the Commissioner to be well-informed of concerns and perspectives of communities: The documentation reviewed and interview consultations indicated that the Commissioner has a need for a modest level of local presence and visibility for OCOL in all regions of Canada in order to carry out his or her mandate under the Act. This regional presence is required in order to have a mechanism for listening to, influencing and connecting to Official Languages community organizations across Canada. The Commissioner needs to be aware of the Official Languages communities’ concerns and priorities, and to demonstrate visible support to these communities where there is alignment with the Commissioner’s mandate pursuant to the Official Languages Act. Interviews revealed that OCOL’s regional presence helps to establish a level of trust and comfort with OCOL which in turn leads to more effective two-way communications. Those individuals consulted in interviews indicated that a regional presence can achieve a higher level of trust and confidence in OCOL compared with maintaining these relations from Headquarters.

Need for regional input to OCOL research, reports, recommendations and tools: The documentation review and interview consultations indicated that there is a need within OCOL, to have information and analytic capacity from the regional perspective, with regards to study planning, interpretation of data, and preparation of reports, recommendations, and briefings to top officials. Internal interview consultations indicate a need for regional input to inform OCOL research, studies, presentations, speeches, Annual Report, presentations to Parliament, and website contents. Interviewees indicated that regional perspective adds value and credibility to OCOL research, reports, recommendations and tools.

Performance (Results & Cost-Effectiveness)

Cost-Effectiveness

The function operated with due regard to economy and efficiency: Based on documents reviewed and interview consultations, the OCOL liaison function operated with due regard to economy and efficiency including the adoption of a number of cost-effective practices to obtain the greatest value from available resources. Interviews and documents indicated a high level of cooperation, collaboration and sharing of cost-effective practices across regions, and for service to the public at major sporting and cultural events. Regional OCOL officials meet together as a community of practice each six weeks by teleconference and travel to one region each year to attend an in-person meeting in that region. In addition, there is an annual meeting at headquarters to exchange information and effective practices. Every two weeks, regions report on issues or events in an internal newsletter – Highlights of the Fortnight / La Quinzaine en bref.

Liaison work plans are based on OCOL’s strategic plan: Interview consultations indicated that the OCOL liaison function prepared its organizational work plans based on the OCOL strategic plan. Within the available resources, OCOL engaged actively with minority official language communities and with federal institutions. Interview consultations in urban locations where there was an OCOL regional office or a satellite office revealed an active level of engagement. A small number of interviewees in locations where there was no OCOL representative or satellite office, or where a position had been vacant for a long period of time, noted a lower level of interaction and engagement. These interviewees showed understanding of cost restraints within government, and emphasized that they would appreciate having more frequent information on Official Languages issues provided to them using cost-effective technology such as emails or teleconferences.

The regional officials managed carefully within a limited budget: The evaluation team estimated the budget of the liaison function within the scope of this evaluation. The estimated resources, used in an average fiscal year for the liaison function activities subject to this evaluation, are estimated, for the purpose of this evaluation study, at approximately $1 million annually, involving, to a greater or lesser extent, about 10 FTE.

Based on evidence gathered through the internal interview consultations, the function has delivered its activities within this budget on a continuous basis and carefully planned the use of these resources to deliver the expected activities, maintain visible and effective support to stakeholders, and deliver immediate results (outputs). Interviews noted that the function has carefully managed its budget and activities in order to maintain a network over such a large geographic area with so few staff. In each region, work plans with regional priorities are prepared by the Liaison Officer(s) and the Commissioner’s Representative in a manner that builds on the priorities set out in the OCOL annual strategic plan. Interviews with OCOL regional officials revealed that all officers have work plans and performance agreements that reflect not only the OCOL strategic plan, but also, the Assistant Commissioner’s performance agreement with the Commissioner.

Budgetary limitations require that visible presence with stakeholders in each region can only be achieved over a period of years: With regard to the extent to which the liaison function manages have a visible presence with community groups over a multi-year basis, the evaluation team did not find any formal national tracking or planning system in place to ensure that there were no gaps in maintaining the network with stakeholders. Challenges in maintaining relationships and being visible with regional community groups were noted during interviews. For example, a few interviewees noted the potential value of providing additional visibility and support from the liaison function to stakeholders in Eastern Ontario, Western Quebec, and Vancouver. The challenge and cost of travelling to rural communities was noted. One interviewee explained that in at least one region, coverage of the full territory was systematically monitored by the OCOL regional officials, and could only be achieved over a period of many years (due to the limited budget and time available with the current level of resources for travel to the more remote parts of the region). Depending on the geographic size of the different OCOL regions, interviewees noted that achieving liaison coverage of semi-rural and rural areas would only be achieved through careful multi-year liaison planning.

Effective practices are shared between regions: Official Languages information and practices are effectively communicated between regions and between regions and headquarters. Information is exchanged on a regular and systematic basis between regions and between regions and HQ, including:

• Regular oral “round-tables” each week
• Through written briefing notes (prepared from time-to-time for the Commissioner or Assistant Commissioner on a high-profile issue, or in the event of a visit to a region)
• Contribution of texts to a bi-weekly internal newsletter (Highlights of the Fortnight)
• Periodic reports prepared following a significant event or project
• Teleconferences of regional officials every six weeks
• Face-to-face meetings held annually with officials of the liaison function in each region on a rotational basis, and at meetings at HQ.
• Tools prepared by one region are shared and adapted as needed and used in additional regions. These tools, such as the guide for Official Languages policies and procedures at significant sporting events (such as the Olympics, Canada Games, or Pan Am / Parapan Am Games) are maintained and improved over time, and adapted for use by different regions.

The function demonstrated effective knowledge management practices in this regard.

Effective collaboration between OCOL liaison officers and Commissioners’ representatives was noted and this collaboration appears to be a factor in achieving highly visible support to stakeholder groups in all regions by building on the successful tools or presentations that are developed in one region, and then adapted for use in many or all regions.

In addition to collaboration and communication of effective practices between OCOL officials in regions, the evaluation revealed effective collaboration and communication between OCOL officials and provincial officials working in this field in several provinces. Memoranda of Understanding (MOUs) are in place between OCOL and the Office of the French Language Services Commissioner of Ontario^{Footnote 3} and the Office of the Commissioner of Official Languages in NB^{Footnote 4}. A MOU is also in place directly between the provincial Commissioners in Ontario and NB^{Footnote 5}. These MOUs have permitted an effective exchange of information and occasional collaboration between these governmental organizations, each focused on their specific federal or provincial mandates. Documents and interviews noted additional excellent relations with OCOL and similar provincial organizations in other provinces where there was no formal MOU in place.

Conclusions

Confirmed relevance and performance of the function:  The evaluation has confirmed the continued relevance of the OCOL liaison function. The function is delivering significant results that advance the mandate of the Commissioner. The evaluation found that the resources used to deliver the liaison function are used in a cost-effective manner.

OCOL officials demonstrated a high level of commitment to the value and success of the liaison function: Interviewees expressed a high level of commitment to the liaison function. External stakeholders at minority official language organizations and federal institutions expressed high regard for the expertise, supports and advice offered by OCOL officials regarding Official Languages issues.

Recommendations

Core Issue: Relevance

Core Issue: Performance (Effectiveness, Efficiency and Economy)

Listing of Interviews Completed

OCOL HQ

1. Assistant Commissioner, Compliance Assurance Branch
2. Assistant Commissioner, Policy and Communication Branch
3. Director, Communications
4. Director, Investigations, Compliance Assurance Branch
5. Director, Performance Measurement, Compliance Assurance Branch
6. Director, Policy and Research
7. General Counsel
8. General Counsel (former)

OCOL Regional Officials

1. Commissioner’s Representative – Atlantic Region
2. Commissioner’s Representative – Quebec Region
3. Commissioner’s Representative – Ontario Region
4. Commissioner’s Representative – Manitoba and Saskatchewan Region
5. Commissioner’s Representative - Alberta, British Columbia, Northwest Territories, Yukon and Nunavut Region
6. Liaison Officer – Atlantic Region
7. Liaison Officer – Quebec Region
8. Liaison Officer – Ontario Region
9. Liaison Officer – Sudbury Ontario Satellite Office
10. Liaison Officer – Manitoba and Saskatchewan Region
11. Liaison Officer – Regina Saskatchewan Satellite Office

Officials from Official Language Organizations

1. Canadian Parents for French (Quebec Region), Quebec Coordinator
2. Canadian Parents for French (B.C. and Yukon Region), Past Chairperson of the Board
3. Canadian Parents for French (Sooke Chapter, B.C.), President
4. Director General, Fédération acadienne de la Nouvelle-Écosse
5. Director General, La Fédération des francophones de la Colombie-Britannique
6. Director General, Société Franco-Manitobaine
7. Director General, Société Saint-Thomas-D’Aquin (PEI)
8. Executive Director, Voice of English-speaking Québec

Officials from Federal Institutions

1. Director, Human Resources Branch, Office of the Privacy Commissioner
2. Director General, Communications, Office of the Privacy Commissioner
3. General Counsel & Champion for Official Languages, Office of the Information Commissioner
4. Integration Officer, Immigration, Refugees and Citizenship Canada, Western Region
5. Manager, National Managers Community in the Region of Quebec
6. Manager, Public Health Agency of Canada (for NB and PEI)
7. Program Manager, Atlantic Region, PCH
8. Regional Director General, Atlantic Region, PCH
9. Regional Director General, Prairies and Northern Region, Canadian Heritage
10. Regional Manager, Quebec Region, National Managers Community/Canada School of Public Service
11. Senior Advisor, Education and Social Development Programs and Partnerships, Quebec Region, Indigenous and Northern Affairs Canada (former Learning Advisor at Canada School of Public Service)
12. Senior Advisor, Human Resources, Atlantic Canada Opportunity Agency
13. Senior Program Advisor, Department of Canadian Heritage, Western Region, Calgary
14. Vice-President, Public Affairs and Programs, Canadian Museum for Human Rights

Provincial Officials

1. Director of Public Relations, Commissioner of Official Languages of New Brunswick
2. Executive Director, Francophone Secretariat, Culture and Tourism, Alberta
3. Manager, Investigations and Audits, Office of the French Language Services Commissioner of Ontario