3.1 Introduction and methodology

In addition to monitoring the progress of the Vancouver Organizing Committee for the 2010 Olympic and Paralympic Winter Games (VANOC) and Canadian Heritage with respect to official languages and the Games, the Commissioner is also interested in what federal institutions are doing to meet and even exceed their official languages obligations as they plan their own activities related to the Vancouver 2010 Olympic and Paralympic Winter Games.

This chapter is a follow-up to the awareness campaign conducted with over 20 federal institutions. It aims to dig deeper into the issues to get a more complete understanding of the state of preparedness of those institutions that will have the most important role to play during the Games. The information gathered in this report represents a snapshot of where institutions were at in their preparations by the summer of 2009.

For this follow-up, the Commissioner selected 11 federal institutions that were deemed to have the most important role to play with respect to the Games, based on the likely experience of a typical visitor to the Games. These institutions are Air Canada, the Canadian Air Transport Security Authority, the Canada Border Services Agency, the airport authorities of Toronto and Vancouver, Canada Post, Service Canada, Parks Canada, the Canada Mortgage and Housing Corporation (for its administration of Granville Island), the Public Health Agency of Canada and the Royal Canadian Mounted Police. More information on the role that each of these institutions will play at the Games is outlined in the sections below.

The Commissioner used two main sources to gather information for this section of the follow-up report. The first consisted of interviews with representatives appointed by the Deputy Head of each of the institutions listed above using a questionnaire that was shared with the institution in advance. The interviews touched on strategic planning efforts, concrete measures taken or planned to ensure adequate bilingual services, and monitoring and follow-up mechanisms in place or planned by the institution. Each institution was given the opportunity to comment on or add to the interview notes that were taken.

3.2 Analysis—Institutions serving the travelling public

3.2.1 Air Canada

Air Canada is without question a key institution when it comes to offering services to the travelling public. As Canada’s primary domestic and international carrier and an official supporter of the Vancouver 2010 Games, Air Canada will be transporting numerous media personnel, athletes and visitors from all over the world to and from the Games. The Games offer Air Canada an opportunity to make Canada’s linguistic duality shine for Canadian and foreign travellers alike.

Strategic planning. Largely because of its role as an official supporter of the Vancouver 2010 Games, Air Canada’s strategic plans have included 2010 initiatives for a number of years, including initiatives specifically related to official languages. Representatives of its official languages team regularly attend Vancouver 2010 operations and marketing meetings, and Air Canada’s strategic planning for official languages and the Games focuses on four areas: communications with airline staff, marketing to the public, in-flight services and ground services at airports. Air Canada plans to estimate by early fall what the demand for services in both official languages will be during the Games based on flight bookings and province/country-of-origin data. Air Canada participates in monthly meetings with the airport authorities but does not maintain any special connection with the Canadian Air Transport Security Authority (CATSA) or Canada Border Services Agency on issues related to official languages.

Concrete measures. Air Canada indicated that it will increase its monthly quality control measures for its signage, continue using bilingual prerecorded announcements in airports, and take extra measures to sensitize Vancouver- and Toronto-based staff of their official languages obligations. It also said that to address its challenge of bilingual capacity, intensive French training is currently being offered in Vancouver, with more sessions being planned in Vancouver and Toronto in the fall. Bilingual staff are being retested to ensure the ability to provide services in both official languages. During the Games, bilingual senior personnel and all of Air Canada’s language instructors will be available to assist employees posted in Vancouver. Reminders of official language responsibilities will be given to employees in employee newsletters, during team meetings and before flights. A booklet of terms and expressions for use by front-line staff will be published in the fall, of which a section regarding Vancouver 2010 is based on the pocket guide used by VANOC.

Monitoring and follow-up. Air Canada plans to use its current quality control system, which consists of three components, including monthly surveys of customer satisfaction that are conducted by a private contractor. There are no plans to have a specific post-Games report that would include official languages other than reports already drafted on compliance with bilingual client service standards.

The observations on service to the public of Air Canada points of service within the Toronto Pearson International Airport revealed that visual active offer was present nearly 7 times out of 10 (68%), verbal active offer of service was made only 5% of the time, and service was available over half of the time (55%). At Air Canada’s points of service in Vancouver International Airport, visual active offer was observed to be available three times out of four (75%), and service in French was available one out of four times (23%). During the observations, verbal active offer was not made at any Air Canada points of service in Vancouver (0%).

Based on the observation exercise, Air Canada faces a number of challenges to fulfill its official languages obligations. Active offer and the availability of service in French still leave much to be desired at Air Canada’s points of service in these two major airports. That being said, Air Canada is taking a number of initiatives to promote official languages in the context of the Games. It is essential that Air Canada’s efforts at getting staff involved at all levels—including front-line airport and in-flight services staff and personnel at the executive level—produce positive results on the ground for the public. In addition to focusing its efforts on improving services at Toronto Pearson International and Vancouver International airports, Air Canada is encouraged to meet with airport authorities and other institutions that provide services to the travelling public in the coming months to discuss common challenges in the area of official languages and present opportunities to share solutions to these challenges, including the sharing of best practices. In the Office of the Commissioner’s view, this level of cooperation would ensure a more coherent experience for travellers with respect to official languages.

3.2.2 Canadian Air Transport Security Authority

The mandate of the Canadian Air Transport Security Authority (CATSA) is to protect Canadians by ensuring that critical elements of the air transportation system are secure. Its screening stations will be important points of contact for Canadians and international visitors in the context of the Games, especially in Vancouver and Toronto. Receiving information in the official language of one’s choice is vital to ensuring that important safety messages and instructions are understood by all passengers. While most front-line staff work for contractors on behalf of CATSA, these third parties have a contractual obligation to ensure that the Official Languages Act and its Regulations are fully respected.

Strategic planning. For the Games, CATSA is planning to open 17 new points of service to screen private landing sites as well as to deal with increased traveller volume at Vancouver International Airport and other airports in the area. An analysis of these points of service for a projected increase in demand—including demand for French service—is currently being conducted. CATSA also indicated that it is examining other ways of improving its offi cial languages performance in the context of the Games, particularly in light of CATSA’s recent poor showing in offer and availability of bilingual services at Halifax, Ottawa, Toronto and Vancouver airports, published in the Commissioner’s 2008–2009 annual report.

Concrete measures. CATSA noted the Olympic Incentive Program it has established. This performance pay program encourages contractors to comply with their official languages obligations by paying them a bonus when they do so fully. Such a program already exists at high-traffic airports, for example, Toronto Pearson International and Vancouver International. CATSA stated that a new signage policy is in effect and that the security counter for restricting liquids and gels is being remodelled to integrate visual active offer. The new counter is currently being piloted in Vancouver. Three special editions of CATSA Checkpoint, its newsletter for screeners, will be published for the Olympics and will include reminders about official languages obligations.

Monitoring and follow-up. CATSA indicated that it will use an internal mechanism in the form of on-site inspectors (oversight officers) and duty managers to monitor performance indicators, including official languages compliance. CATSA noted that monitoring is performed on a continuous basis and it believes that its present mechanism is sufficient. CATSA does not regularly meet with Air Canada, the Canada Border Services Agency or the airport authorities to discuss official language issues.

The observations on service to the public at CATSA’s points of service within the Toronto Pearson International Airport revealed that visual active offer was present more than 8 times out of 10 (86%) and that verbal active offer and service were available only 9% of the time. At its points of service in Vancouver International Airport, CATSA’s results revealed that visual active offer was available three times out of fi ve (62%) and that verbal active offer from staff was available almost half the time (48%) and service in French was available 43% of the time.

CATSA faces specific challenges regarding its use of third-party services for its screening operations, but it has found some creative ways to encourage greater compliance from its contractors, notably through a financial incentive program. However, overall observations revealed that active offer has yet to be fully present and that service is seldom available in the language of the minority at the airports observed.  These observation results are unacceptable, and they are a clear indication that much work still needs to be done by CATSA to improve its performance in Toronto and Vancouver in time for the Games. CATSA is encouraged to meet with other institutions within the airports with the goal to share best practices and improve overall service in both official languages at its security checkpoints.

3.2.3 Canada Border Services Agency

The Canada Border Services Agency (CBSA) is the first point of contact on Canadian soil for all international travellers coming to the Games, whether they are arriving by land, sea or air. CBSA is likely, therefore, to leave a lasting impression on all of those passing through its points of service. As such, it is essential that CBSA staff—and border services officers, in particular—be able to greet and offer services to international visitors in both official languages.

Strategic planning. CBSA has been planning for Vancouver 2010 for a number of years, and it said that an internal Olympic and Paralympic Task Force was set up to coordinate the agency’s preparations for the Games. The task force has been working closely with the agency’s official languages team as well as its regional official languages coordinators, particularly in the Pacifi c and Greater Toronto regions, to ensure that all official languages requirements are met. A major part of CBSA’s Olympic and Paralympic plans include moving personnel from other regions of Canada to Toronto and British Columbia to meet the predicted increase in demand. It also conducted an analysis of where bilingual services may be required during the Games where there is not normally an obligation. CBSA provided a specific action plan for official languages for the Vancouver 2010 Games.

Concrete measures. CBSA described a number of important measures being taken to integrate official languages into its planning for 2010. For example, it plans to offer official languages awareness sessions and specific workshops to border services officers about the importance of making a verbal active offer of service. When CBSA advertised assignment opportunities to border services officers interested in working in Toronto and British Columbia, bilingualism was one of the selection criteria. CBSA indicated that it plans to go beyond its obligations and offer bilingual services at the land border crossings at Huntingdon, Aldergrove, Boundary Bay and Pacific Highway. These crossings do not normally have official languages obligations. Other planned measures consist of telephone tutoring in the second language, pocket translators, promotional material and regular reminders. The agency also plans to verify signage at Vancouver International Airport as well as Toronto Pearson International Airport to ensure that signs are fully compliant. CBSA said that it is in partnership with Western Economic Diversification Canada and the Société de développement économique de la Colombie-Britannique to develop a brochure showcasing cultural events in the Francophone community during the Games and listing Francophone businesses and restaurants, while providing a bilingual map of the downtown core and Olympic and Paralympic venues. This brochure may be provided to all visitors passing through CBSA points of service. Finally, CBSA is working with the Pacific Federal Council to organize a 2010 Olympic and Paralympic Outreach Forum with the local Francophone community, which is  planned for October 2009.

Monitoring and follow-up. The internal Olympic and Paralympic Task Force will be responsible for monitoring CBSA’s performance during the Games, including official languages. CBSA also plans to report to Canadian Heritage after the Games to provide an overall picture of how it performed its functions during the Games, including in the area of official languages.

CBSA efforts to ensure that the Games are fully bilingual from the moment travellers arrive in the country are encouraging. By the number of initiatives planned, it is clear that CBSA is showing leadership in trying to improve its official languages performance in advance of the Games. In particular, the agency’s active offer workshop is considered a best practice that could be shared with other institutions, as is CBSA’s decision to go beyond its obligations and have bilingual capacity at certain non-designated border crossings. That being said, CBSA is encouraged to closely monitor its official languages performance during the Games, and to ensure that the measures it is taking leave a legacy after the Games with respect to official languages compliance, especially at Vancouver International Airport and Toronto Pearson International Airport. The Office of the Commissioner hopes that these promising initiatives will produce results on the ground. (The Office of the Commissioner did not conduct observations of CBSA’s points of service, due to challenges in having observers in restricted areas of the airport).

3.2.4 Greater Toronto Airports Authority

The role of the Greater Toronto Airports Authority (GTAA) is to manage, operate and maintain airports in the Greater Toronto Area, including the Toronto Pearson International Airport. As Canada’s largest airport, it will act as a key hub to travellers en route to the Vancouver 2010 Games, making it a key institution for this report. The GTAA is responsible for ensuring that commercial tenants and contractors under its authority respect their official languages requirements where there is an obligation.

Strategic planning. The GTAA indicated that it hopes to use the buildup around Vancouver 2010 to change its organizational culture and long-term performance in the area of official languages. An increase in demand for services in French is expected at the airport, and the GTAA plans to examine country-of-origin data for flights during the Games to develop a better understanding of what that increase might involve. In the context of the Games, the GTAA stated that it will focus its efforts on the transit areas of the airport given that many travellers will remain in those areas while transferring to their next flight.

Concrete measures. The GTAA indicated that it has been in discussions with Air Canada regarding its Vancouver 2010 signage at Toronto Pearson International Airport, ensuring among other things that it is bilingual. It said that new contracts with front-line staff, such as for wheelchair services, include official languages obligations. A 24-hour bilingual call centre and phrase cards in French are available to GTAA employees and certain contractors. The GTAA recognizes that its commercial tenants face a number of challenges when it comes to official languages, in particular the recruitment of bilingual staff and the use of verbal active offer. The airport authority stated that its customer experience team plans to send regular reminders to commercial tenants in advance of the Games to improve their performance. Regular Airport Operators Committee meetings with the Canada Border Services Agency, the Canadian Air Transport Security Authority and various airlines are ongoing but not currently used to discuss official languages concerns. Finally, the GTAA indicated that it has taken steps to work with the local Francophone community to promote community vitality at the airport through cultural exhibitions.

Monitoring and follow-up. Comments cards are available to the public and the GTAA indicated that it will continue its regular monitoring of commercial tenants, including for signage and other official languages obligations.

The observations of service to the public by commercial tenants at Toronto Pearson International Airport revealed that visual active offer was present just over half of the time (58%), verbal active offer was never made by staff (0%) and service was available only one out of five times (18%). These results show that much work remains to be done in the months before the Games to ensure full official languages compliance at the airport.

Some measures are being taken to increase official languages compliance at Toronto Pearson International Airport in advance of the Vancouver 2010 Games, and it is encouraging that the airport authority expects its efforts to have a lasting effect. However, given the poor results of the observation of commercial tenants, it is urgent that the GTAA take more drastic measures to focus on and monitor its commercial tenants for active offer and availability of bilingual service. The GTAA is also encouraged to hold meetings with other institutions within the airport that have official languages obligations to share best practices and discuss ways of facing common challenges. The Office of the Commissioner will continue to monitor the performance of the GTAA and hopes to see improved results.

3.2.5 Vancouver Airport Authority

The Vancouver Airport Authority’s role is to manage, operate and maintain the Vancouver International Airport. That role includes ensuring that commercial tenants and contractors under its authority respect their official languages requirements where there is an obligation. As host airport and official supplier for the Vancouver 2010 Games, Vancouver International Airport will be welcoming thousands of travellers who will descend on Vancouver for the Games. In that context, the Vancouver Airport Authority plays a crucial role when it comes to ensuring that language rights are fully respected and promoted.

Strategic planning. Generally speaking, the airport authority informed the Office of the Commissioner that it integrates official languages at all times into all of its planning. Airport authority officials said they are already taking all necessary measures to ensure full compliance and nothing specific will be needed in the context of the Games. The airport authority indicated that it does not expect an increase in demand for services in French during the Games period.

Concrete measures. The airport authority plans to ensure that all signage is compliant with official language obligations, but did not specify how it would do this or identify any measures to ensure verbal active offer or the availability of services, particularly from its commercial tenants. Its consultations with other institutions that provide services to the travelling public have focused on customer care in general, not official languages concerns in particular. For example, the Airport Authority has 24 telephone lines at various counters and customer care counters that allow interpreters to provide airport information in over 170 languages. With regards to consultations with official language communities, the Planning team and Customer Care department have met with representatives of the community to recruit volunteers for the airport’s Volunteer program both during and after the Games as well as to meet translation needs during the Games.

Monitoring and follow-up. The airport authority plans to monitor its performance in terms of customer care, but with no specific focus on official languages in particular.

The observations of service to the public revealed that visual active offer was present just over half of the time (53%), verbal active offer of service was never made by commercial tenants in the airport (0%) and service was seldom available (10%).

While the airport authority states that it complies with the Official Languages Act and integrates official languages into all aspects of its business, the poor results observed at Vancouver International Airport and the airport authority’s lack of specific official languages measures for the Games are reason for concern. If the observation results are any indication, a business-as-usual approach is clearly insufficient, and the airport authority must take significant measures in the coming months to ensure that its commercial tenants fully respect their legal obligations and are able to welcome Canadians and international visitors in the official language of their choice. The airport authority should focus its efforts on active offer and the availability of services in French, in addition to putting official languages on the agenda at meetings with other institutions that work in the airport. The airport authority is strongly encouraged to use the Games as a starting point to improving its overall official languages compliance, and more generally show leadership to ensure greater respect for Canada’s linguistic duality.

3.3 Analysis—Other key institutions serving the public in the context of the Games

3.3.1 Canada Post

As Canada’s national mail carrier and one of the official suppliers of the Vancouver 2010 Games, Canada Post will be a major point of contact for a substantial number of travellers sending and receiving mail. Indeed, interaction with Canada Post is inevitable for most Canadians and foreign visitors that will be in Vancouver and Whistler for the Games. As a symbolic national institution, Canada Post has the opportunity to use the Vancouver 2010 Games to demonstrate leadership in the area of official languages.

Strategic planning. Canada Post is focusing its strategic planning efforts on its four Vancouver offices that already have bilingual obligations. However, it did indicate that special measures will be taken to ensure that a bilingual capacity is present at the Whistler corporate office to offer services in French during the Games. Canada Post indicated that bilingual capacity is already present in its designated offices, and that it will be able to provide adequate service in French even if there is an increase in demand. As part of its preparations, Canada Post has been in touch with the United States Postal Service to obtain information and data from the 2002 Salt Lake City Games.

Concrete measures. Canada Post recognizes the ongoing challenges that it faces in terms of verbal active offer and is planning on meeting with local office managers to remind them of their official languages obligations. Special measures will also be taken to sensitize employees at the Whistler post offi ce in advance of the Games. All the currently available written information in all Canada Post offices will continue to be available in both official languages, regardless of demand or designation of the offi ce. Canada Post also plans to promote its bilingual points of service through VANOC’s athletes guide. Consultations with official language minority communities have taken place and are ongoing, particularly in relation to bilingual staffing.

Monitoring and follow-up. Canada Post will continue to use its current monitoring system through a contract with a private firm. Canada Post indicated that these third-party calls and spot checks may be increased in Vancouver and Whistler in advance of and during the Games. A post-Games report is planned and Canada Post indicated that it will, in all likelihood, contain an official languages element.

Observations and analysis

The observations of service to the public at Canada Post offices in Vancouver and in the Rockies revealed that visual active offer was present almost all the time (94%), verbal active offer of service was made nearly two out of five times (18%) and service was available three out of four times (73%).

Canada Post has undertaken specific measures to improve its performance in time for the Games, in particular in the area of active offer. It is also showing leadership by going beyond its obligations and ensuring that there is a bilingual capacity at its Whistler post office. Canada Post plans on informing athletes of which offices are designated bilingual. However, it may want to consider other measures given that there will be no special post offices set up at Olympic and Paralympic sites. The observation results demonstrate that active offer still remains Canada Post’s greatest challenge, and that there is still room for improvement in offering services in French at all times in designated offices. Canada Post is encouraged to continue its efforts in the months leading up to the Games, and to continue finding ways of promoting its bilingual services to the thousands of athletes, media personnel and visitors who will be arriving in Vancouver.

3.3.2 Service Canada

As the one-stop shop for a large number of federal services, Service Canada will be an essential resource for all Canadians and tourists seeking information about government services and how to access them during the Games. As such, it has a front-line role in dealing with members of the public in their language of choice. For many, Service Canada offices will be a symbol of the federal government’s presence in Vancouver, just as it is in other parts of the country.

Strategic planning. Service Canada has taken steps to integrate official languages into its planning for Vancouver 2010. As part of its preparations, Service Canada expects an increase in demand not only for French services, but also in languages other than English and French. Service Canada has determined that its Whistler and Richmond offices, which do not have an obligation to provide services in French, should have an increase in bilingual capacity during the Games to respond to demand. Information about the language rights of clients is already available at all Service Canada offices regardless of linguistic designation.

Concrete measures. Service Canada stated that its temporary office in Whistler will be staffed with bilingual employees. It plans to send outreach staff to high-traffic tourist areas to provide information and services to those unaware of the location of Service Canada offices in Vancouver, and indicated that these employees will be bilingual to the greatest extent possible. The Richmond office closest to both Vancouver International Airport and the Richmond Olympic Oval will also offer bilingual service during the Games even though it is not designated as bilingual. To deal with the potential increase of requests in French at other non-designated offices, Service Canada intends to set up a temporary phone system allowing interpretation between the client and the Service Canada employee. One challenge highlighted by Service personnel in the region. Discussions with official language minority communities and Francophone groups in British Columbia are ongoing and will continue during and after the Games.

Monitoring and follow-up. There are currently no monitoring mechanisms to determine the language of Service Canada transactions and there are no plans to monitor official languages compliance given the mobility of staff during the Games. A post-Games report with official languages elements is planned.

The observations of service to the public revealed that visual active offer was present all the time (100%), verbal active offer of service was made three out of four times (75%) and service was available almost all the time (92%).

Service Canada demonstrated that it has paid special attention to official languages in the context of the Games, and important steps are being taken to offer services in key non-designated offices that will likely experience an increase in demand during the Games. The good results obtained in the observations are an example of leadership, and one for other federal institutions to follow. To this end, Service Canada is encouraged to share best practices with other institutions, and to continue working to address its main challenge of recruitment of bilingual personnel, a challenge that is shared with other federal institutions in the region as well as VANOC.

3.3.3 Parks Canada

As the manager of Canada’s nationally protected landscapes, Parks Canada locations will certainly be a popular destination for Canadians and foreign tourists alike, especially given the proximity of many national parks to Vancouver and Whistler. While only one Parks Canada site, Fort Langley, is within the immediate vicinity of Vancouver, the agency manages several world-famous sites in the Canadian Rockies that are a relatively short distance from Vancouver, especially for those travelling before and after the Games. Parks Canada locations will also play an important role in hosting different parts of the 2010 Olympic Torch Relay across the country. It is important to note that all national parks have offi cial languages obligations.

Strategic planning. Parks Canada indicated that official languages are a continuous subject of discussion at its Vancouver 2010 Outreach and Engagement Committee meetings. Despite the fact that all of its points of service are designated bilingual, Parks Canada indicated that further measures would be take to remind all employees of offi cial languages obligations—in particular active offer—and fully integrate linguistic duality in all 2010 initiatives.

Concrete measures. In preparation for the Games and the 2010 Olympic Torch Relay, Parks Canada has taken measures to raise awareness with its park managers of their offi cial languages obligations, including visual active offer, verbal active offer and services. In July, another reminder was sent to Parks Canada senior managers by the chief human resources offi cer and the offi cial languages champion regarding language rights in the context of the Games. Parks Canada stated that it will be relying mainly on seasonal workers to provide service to the public, and has created a DVD on verbal active offer to train new staff. A cue card with phonetic references and responses to frequently asked questions has also been created to allow non-bilingual employees to respond to simple inquiries in French.

Monitoring and follow-up. Parks Canada conducts telephone audits to verify active offer and the availability of service in both official languages. It indicated that it plans to conduct extra monitoring of locations in British Columbia and Alberta prior to the Games. Parks Canada is expecting to publish a report after the Games containing official languages elements.

The observations of service to the public revealed that visual active offer was present at all times (100%), verbal active offer of service was made less than half of the time (43%) and service was available almost all the time (95%). On some occasions during the observations, it was diffi cult to make a distinction between Parks Canada employees and employees of other organizations sharing its office space, such as Tourism BC.

Measures put in place by Parks Canada seem to be translating into positive results on the ground. The active offer DVD created by Parks Canada has been requested by a number of other federal institutions and can certainly be considered as a best practice. Parks Canada is encouraged to continue finding creative ways of promoting the use of active offer, and to ensure that its employees are clearly identifiable at locations in the Rockies. Parks Canada should also find specific ways to use the 2010 Olympic Torch Relay as a means to promote Canada’s linguistic duality across the country.

3.3.4 Canada Mortgage and Housing Corporation

The Canada Mortgage and Housing Corporation (CMHC) is responsible for the management of Granville Island, a popular tourist attraction in central Vancouver. Because Granville Island is slated to host an initiative called La Place de la Francophonie during the Games, CMHC’s role as manager of the island makes it an important federal institution for ensuring the provision of services in both official languages at points of service on the island.

Strategic planning. CMHC said that bilingual staff and volunteers will be available at its information centre on the island, as well as roaming bilingual ambassadors at various outdoor information stations. CMHC employees and volunteers will wear badges identifying to visitors what languages they speak. CMHC anticipates that an additional 30,000 people will visit Granville Island during each day of the Games, of which it estimates 10% will require or prefer service in French.

3.4 Analysis—Institutions playing a coordinating role for health and security at the Games

3.4.1 Public Health Agency of Canada

The Public Health Agency of Canada (PHAC) will play a lead role in the coordination of any health emergency response during the Games, and as such was chosen as a key institution for this follow-up report. PHAC has federal jurisdiction over issues of public health and is responsible for quarantine operations and directing medical services in the event of an outbreak of infectious disease or any other event that may endanger the health of the public. As such, the ability to communicate with other organizations, provinces, municipalities and the general public in both official languages is critical.

Strategic planning. PHAC indicated that it is looking to its experience with the H1N1 emergency in April 2009 as a model for dealing with any potential health emergency during the Games. During this crisis, PHAC indicated that, after a quick adjustment in the beginning, it was able to comply with its language obligations and provide information as well as coordinate action in both official languages. In its planning, PHAC considers the needs of the public as well as the needs of its other partners, such as provincial governments. According to PHAC, providing services and support in both official languages is part of its standard operating procedures during emergency operations.

Concrete measures. PHAC provided examples of a number of concrete measures that it plans to take in advance of the Games to ensure it fulfills its official languages obligations. Its quarantine program, for example, is planning on offering assignment opportunities to fill temporary positions at Vancouver International Airport during the Games, and one of the selection criteria for the assignment will be bilingualism. For emergency coordination, PHAC is planning on sending additional personnel to Vancouver to ensure that its Emergency Center remains open at all times and that bilingual capacity is taken into account. Translators and interpreters are planned to be on hand to ensure information is provided accurately in both official languages without delay. Media liaison officers will also be available to address queries in English or French. A training module is also being developed for staff that will include information on official languages obligations. Finally, if a member of the emergency response team or quarantine program is unable to provide services in French, the agency indicated that it may use interpreters either in person or by phone as an administrative measure. According to PHAC, one of its key challenges is balancing the need for bilingual capacity with the need for highly specialized medical professionals, not all of whom are bilingual. It should be noted that PHAC is not alone, as this challenge is also shared by VANOC in the context of its medical response coordination for Olympic and Paralympic venues.

Monitoring and follow-up. Performance indicators for the Games are being developed and these include official languages compliance indicators. PHAC is also examining the percentage of bilingual staff in Vancouver to ensure as many bilingual personnel on the ground as possible.  PHAC will prepare a post-Games report that includes official languages.

PHAC has taken important steps to ensure that proper translation and interpretation will be present during any potential health emergency at the Games. The efforts being made to ensure that there is an adequate bilingual staff contingent shows that PHAC is taking concrete steps to deal with a potential increase in demand for services as well as the need to provide quality information without delay in both official languages. It will be important that the agency review its current temporary administrative measures in the event that a member of its staff or someone under contract is unable to provide services in French. However, permanent measures that fully respect the spirit and intent of the Act would need to be implemented. PHAC should play an important leadership role in ensuring that official languages are discussed with counterparts at other levels of government. Given the critical role that the agency plays in coordinating response to health emergencies, the Office of the Commissioner will be monitoring its offi cial languages performance during the Games. (The Office of the Commissioner did not conduct observations of PHAC’s points of service.)

3.4.2 Royal Canadian Mounted Police

As the lead organization for the Vancouver 2010 Integrated Security Unit (ISU), the Royal Canadian Mounted Police (RCMP) will play an important coordination role for all elements of security during the Games, and is a major recipient of federal funding for the Games. Keeping people and venues safe at the Vancouver 2010 Games will be a major undertaking, and one that will be closely coordinated with various law enforcement agencies and private security services, which, acting on behalf of the RCMP, have an obligation to ensure that the Official Languages Act and its Regulations are fully respected. Furthermore, the RCMP is an international symbol of Canada, and one that many people will turn to in case of an emergency during the Games.

Strategic planning. Given its key coordination role, the RCMP has been planning for the Games for the past several years. In selecting personnel for deployment and deciding where they will be placed, the RCMP stated that bilingual capacity was one of the criteria used. Approximately 7,000 law enforcement personnel from over 100 police forces, including the Sûreté du Québec, will be deployed to the region for the Games; these offi cers will be easily identifiable because they will be in uniform. Contracts with private security firms also contain language clauses to ensure sufficient bilingual capacity among the approximately 5,000 contracted private security personnel that will be deployed for the Games. The RCMP expects that one in three security personnel will be able to provide services in both official languages during the Games, with a service standard of two minutes to respond to a query in French.

Concrete measures. The RCMP is considering using a visual marker such as a pin to identify bilingual officers during the Games. A private security coordinator has been appointed to oversee that private security companies comply with their contractual obligations, including those related to official languages. The RCMP will increase its bilingual capacity to respond to media requests, and it indicated that it will consider enhancing its bilingual capacity at Vancouver International Airport.

Monitoring and follow-up. The RCMP has created a quality assurance team to evaluate the quality of services provided by private security personnel, including official languages. A post-Games report will be prepared and the RCMP stated that it will consider including an official languages component.

The RCMP has demonstrated that it is taking important steps to ensure that a large number of its law enforcement and security personnel can respond to members of the public in the official language of their choice, and it should be noted that a service standard has been established. It has also put in place a mechanism to monitor performance during the Games. In addition to these measures, it is essential that unilingual officers and contracted security personnel be aware of the RCMP’s obligations, and that there is a plan in place to ensure that they immediately direct to a bilingual offi cer any member of the public asking for service in French. During the Games, people will turn to the RCMP and other members of the ISU when in vulnerable situations, and in these cases being properly understood and responded to in the official language of their choice is critical. The RCMP is encouraged to examine ways in which it can further monitor official languages compliance during the Games, and to ensure adequate bilingual capacity at various venues and sites at the Games. (The Office of the Commissioner did not conduct observations of the RCMP’s points of service.)

3.5 Overall analysis of the state of preparedness of key federal institutions

The analysis of the information gathered for this report shows that since the Commissioner’s awareness campaign—and in some cases prior to that—a number of institutions have taken concrete steps to integrate official languages into their planning for the Vancouver 2010 Games, and during the last few months the Office of the Commissioner of Official Languages has learned about some encouraging initiatives, a sample of which are outlined below. That being said, for some institutions there is still work to be done on some critical elements to ensure that official languages obligations are fully respected in time for the Games. These key institutions are urged to work quickly to address the areas of concern identified.

3.5.1 Best practices

One of the main objectives of this chapter was to collect and share best practices in federal institutions in the context of the Vancouver 2010 Games. The Commissioner would like to highlight the following initiatives, and will be monitoring institutions to see whether they produce concrete results for Canadians:

Measures taken to go beyond normal official languages obligations: Some institutions, such as Service Canada, Canada Post and the Canada Border Services Agency, plan to offer services in both official languages during the Games at points of service where they do not normally have an obligation under the service to the public regulation. These steps are being taken in response to a projected increase in demand for French services in key locations such as Whistler, and at various land border crossings in British Columbia.

Special measures for front-line personnel at the Games: A number of institutions are planning special measures for front-line staff to ensure adequate bilingual capacity and to improve performance in the area of official languages in time for the Games. Measures to highlight include the intensive French courses Air Canada is offering to staff in Vancouver and Toronto, the Olympic Incentive Program for contractors put in place by the Canadian Air Transport Security Authority, the active offer session developed by the Canada Border Services Agency, and the active offer training DVD prepared by Parks Canada.

Measures to ensure adequate bilingual capacity when moving personnel for the Games: Several institutions are required to increase their capacity for the Games, resulting in the move of personnel to key points of service in British Columbia and elsewhere. Encouragingly, all the institutions where this is taking place, including the Canada Border Services Agency, the Canadian Air Transport Security Authority, the Royal Canadian Mounted Police, the Public Health Agency of Canada, Canada Post and Service Canada, have taken the steps they feel are necessary to ensure that there  will be adequate bilingual capacity among their additional personnel assigned to the Games, without signifi cantly depleting bilingual resources elsewhere.

Measures to make links with offi cial language minority communities: Some institutions have also used Vancouver 2010 as a means to develop closer ties with Francophone minority communities. One of the examples that stands out is the work being done by the Canada Border Services Agency in collaboration with Western Economic Diversifi cation Canada and the Société de développement économique de la Colombie-Britannique to create and plans on distributing a brochure showcasing cultural events in the Francophone community during the Games and listing Francophone businesses and restaurants in the area. Another example is the Canada Mortgage and Housing Corporation’s support of the Place de la Francophonie initiative on Granville Island.

3.5.2 Areas of concern

With less than six months to go before the Games begin, the state of preparedness of some federal institutions related to official languages raises some concerns. These concerns can be grouped into four key themes: the travelling public, active offer, the coordination of essential health and security services, and monitoring and follow-up. In response to his concerns, the Commissioner is issuing five recommendations and will use the information gathered in follow-up to these recommendations to provide Parliament with an update on the issue of official languages at the Vancouver 2010 Games.

3.5.2.1 Travelling public

A large number of travellers will be passing through the Toronto Pearson International and Vancouver International airports on their way to and from the Games. It is important that they experience seamless service in the official language of their choice at the points of service of the various institutions that have official languages obligations. This includes service from commercial tenants that are overseen by the airport authorities. Despite the number of initiatives being undertaken by some institutions that serve the travelling public, the observation results leave the Commissioner concerned that more action needs to be taken in advance of the Games, especially at Vancouver International Airport. Although they are each accountable for their own performance in the area of official languages, institutions working within the same airport are strongly encouraged to find opportunities to discuss official languages issues together to improve the overall traveller experience at the airport when it comes to being served in the official language of one’s choice.

3.5.2.2 Active offer of service

The analysis of the observation results compiled by Statistics Canada shows that while efforts have been made by some institutions to improve results, in most cases the reflex of actively offering services in both English and French, through bilingual greetings, was not present. The Commissioner cannot stress enough the importance of making the public aware that they have the right to be served in the official language of their choice, and the obligation to make an active offer seeks to address this issue. All institutions need to take further measures to improve their performance in this area.

3.5.2.3 Coordination of health and security services at the Games

In their key coordinating role for health and security services at the Games, the Public Health Agency of Canada and the Royal Canadian Mounted Police will be monitored by the Commissioner of Official Languages. While both have taken important steps to integrate official languages into the planning for the Vancouver 2010 Games, the Commissioner is concerned that some of their partners at provincial and local levels may not be fully aware of the obligations that these federal institutions have and what that implies. It will be important that these two institutions take steps, at a minimum, to discuss their obligations with partners at other levels of government, and show federal leadership to ensure that official languages are being considered in the overall coordination of health and security responses at the Games.

3.5.2.4 Monitoring and follow-up

In addition to the important planning that needs to be done by federal institutions in advance of the Games, the Commissioner is also interested in seeing institutions monitor their official languages performance during the Games, and report on positive experiences and lessons learned after the Games. This information will be useful in ensuring that measures taken and lessons learned are well documented for any future event of this scale that Canada might host in the future.

It will also be important for Canadian Heritage, which is responsible for the federal coordination framework and for overseeing the Multi-Party Agreement with VANOC (as outlined in Chapter 2), to assess its own experience after the Games in relation to official languages, and suggest ways to improve government coordination and oversight for future events.

To that end, the Commissioner asks these institutions, including Canadian Heritage, to inform him of their own evaluation after the Games, which will help contribute to his own post-Games assessment on the status of Canada’s two official languages at the Vancouver 2010 Games.