LANG Committee Report

D. Economic development

The 2008-2013 Roadmap includes two economic development components: language sector initiatives and the economic development of OLMC.

1. Language sector initiatives. 2008-2013 Roadmap Investments: Initiatives and success stories

1.1 Language sector promotion: Language Technologies Research Centre (National Research Council of Canada)

Two initiatives fall under promotion and development of Canada’s language sector. First, the National Research Council of Canada (NRC)’s Language Technologies Research Centre received $10 million over 5 years from the Roadmap to develop automatic translation technology called PORTAGE and to create WebiText, a translation
assistance tool.

NRC is a world leader in developing language technologies and a key figure in the development of Canada’s language industry:

The presence in Canada of a strong language industry is an essential factor in preserving Canada’s linguistic duality. Clearly NRC’s contributions to language technologies were a key solution to maintaining the competitiveness of the Canadian language industry.

In conclusion, I would like to say that NRC is proud of its accomplishments in this initiative. Together with our partners, we have built a world-class team creating jobs and bringing value to the Canadian language industry by providing them with a global competitive edge.[99]

The Committee learned that language technologies developed by NRC are already in use, particularly by the Translation Bureau. As well, PORTAGE has won awards at international competitions and helped NRC sign international partnerships.

1.2 Language Industry Initiative (Translation Bureau, Public Works and Government Services Canada)

Second, there is the Language Industry Initiative of Public Works and Government Services Canada’s (PWGSC) Translation Bureau. This initiative, part of the Bureau’s Language Sector Enhancement Program, helps improve the language sector’s capacity for promotion, workforce development and incorporation of language technologies. The Roadmap has provided $10 million over 5 years to this initiative. According to the Department, nine projects were implemented.

Apart from NRC and Translation Bureau officials, the other witnesses did not bring forward any recommendations regarding the above initiatives. However, the Committee believes that Canada ought to stand out in the area of language technologies on the world stage. To accomplish this, the Government of Canada must fund research that promotes and develops the language industry. Consequently, the Committee recommends:

Recommendation 13

That the Government of Canada, in a future horizontal initiative for official languages, support initiatives for developing language technologies and the industry so as to promote official languages and fully benefit from the economic benefits derived from Canada’s linguistic duality.

2. Support for OLMC economic development: Initiatives and success stories

In his 2008-2009 annual report, the Commissioner of Official Languages of Canada shared his vision of community economic development:

Official language minority communities have the infrastructure, resources and tools they need to implement sustainable community economic development and human resources development initiatives, which enable them to contribute to their vitality and to the economic growth of their region and province.[100]

The Roadmap helps accomplish this vision through two key initiatives: the Economic Development Initiative (EDI) and the Enabling Fund.

2.1 Economic Development Initiative

2.1.1 Industry Canada

The Economic Development Initiative (EDI), led by Industry Canada and the regional development agencies, highlights the economic benefits of linguistic duality and the vitality of OLMC. The EDI supports projects that foster entrepreneurship, innovation, diversification and partnership building. The Government of Canada provided $30.5 million through the Roadmap to implement it.

Although Industry Canada plays a coordinating role in the EDI, each economic development agency acts independently with respect to investments. Industry Canada believes this is a winning formula that capitalizes on the agencies’ expertise
and experience:

I think that’s, in part, the key to how the economic development initiative has turned out. Each of the agencies has an existing field staff network and infrastructure to deliver economic development programming. They have then been brought in much closer contact with the official language minority communities in their own jurisdictions.[101]

Industry Canada received $10.6 million over 5 years for the EDI. It focuses on four key areas: an OLMC consultation process, a national research program to assess OLMC socio-economic conditions, the Northern Ontario regional economic development agency (FedNor) program delivery, and a summative evaluation. In this regard, FedNor is responsible for the EDI’s Northern Ontario component. It received $4,450,000 from the Roadmap. Its work is focused on diversification and job creation and encourages sustainable, self-reliant communities in Northern Ontario. Although FedNor plays a role similar to that of the other regional development agencies, it is under the Industry Canada portfolio.[102]

2.1.2 Canadian Northern Economic Development Agency (CanNor)

The Canadian Northern Economic Development Agency (CanNor), created in August 2009, is the only federal institution with a mandate exclusively for the North and headquartered in the territories. As part of the Roadmap, CanNor received $400,000 to implement the EDI. CanNor leverages Roadmap funds and to date has contributed to 9 projects totalling $1,850,000: Carrefour Nunavut received $175,000 to plan and design a business incubator; the Conseil de développement économique des Territoires du Nord-Ouest received $453,000 to develop a territorial strategy for Francophone tourism, and the Association franco-yukonnaise received $122,550 for Francophone tourism capacity-building in Yukon.[103]

CanNor works with Northern Francophone communities through Table 867. This coordinating table helped develop a territorial economic development strategy for Francophone communities. Tourism was identified as a priority area.

2.1.3 Atlantic Canada Opportunities Agency (ACOA)

The Atlantic Canada Opportunities Agency (ACOA) is involved in implementing the EDI. As part of the Roadmap, ACOA received $6.2 million in funding, of which $500,000 was held for administrative costs related to EDI implementation. This funding enhances the Business Development Program and the Innovative Communities Fund, which is included in ACOA’s regular programs. The Program focuses on three key areas: business development; community development; and policy, advocacy and coordination.

ACOA officials said that the $5.7 million from the Roadmap were allocated to non-commercial activities so as to support small and medium-sized businesses (SMBs). Specifically, that resulted in the funding of 34 projects, including Traduction NB Translation, a project to help SMBs cover the cost of translating their advertising material; translation of the Pays de la Sagouine’s programming into English, and funding for two projects of the Commission du tourisme acadien du Canada atlantique to develop the Acadian experience concept in 5 Acadian tourist attractions in Atlantic Canada.

2.1.4 Economic Development Agency of Canada for Quebec Regions

The Economic Development Agency of Canada for Quebec Regions, which received $10.2 million over 5 years from the Roadmap, works to promote the long-term economic development of the regions of Quebec by paying special attention to those regions where slow economic growth is prevalent or opportunities for productive employment are inadequate.

In implementing the Roadmap and Part VII of the Official Languages Act, the Economic Development Agency of Canada for Quebec Regions works with Quebec’s Anglophone communities to foster their integration into the Quebec economy. To accomplish this, the Agency developed a Results-Based Action Plan that features the following action categories: awareness, consultations, communications, coordination and liaison, funding and program delivery, and accountability. The Roadmap funding provided to Canada Economic Development for Quebec Regions went toward increasing investments into current activities in the Agency’s regular programs. The Roadmap helped fund projects submitted by not-for-profit organizations and by businesses in the 24 regional county municipalities where Anglophones make up at least 5% of the total population. The Agency approved 9 new projects under the EDI totalling $2.6 million in support and an investment value of $9.3 million.

2.1.5 Federal Economic Development Agency for Southern Ontario (FedDev Ontario)

Created in August 2009, the Federal Economic Development Agency for Southern Ontario (FedDev Ontario) is mandated to deliver economic development tailored to the unique needs and priorities of workers, businesses and communities. FedDev Ontario received $4,450,000 over 5 years from the Roadmap, of which $500,000 are set aside for program administration. According to the Agency:

To date, 30 projects across southern Ontario with a value of about $2.6 million have been approved and are either completed or in the process of being completed. This represents approximately 64% of the total announced budget for EDI.

Projects range from the development of strategic plans, to marketing initiatives, to youth internships, to the new microcredit investment fund recently announced.

All of these projects are helping to meet the needs of the Francophone communities in southern Ontario.[104]

Last year, FedDev Ontario held consultations with Franco-Ontarian economic development agencies in a move to revive its program, which had attracted little interest. Of a total available budget of $4 million, appropriations totalling $1.4 million had remained unused. Since then, FedDev Ontario has been able to forge partnerships with the Fondation franco-ontarienne, the Réseau de développement économique et l’employabilité de l’Ontario (RDÉE Ontario) and the Assemblée de la francophonie de l’Ontario.[105]

The contribution agreement with the Fondation franco-ontarienne, in partnership with the credit unions, is used for creating a microcredit fund to provide loans to Francophone business owners in Southern Ontario. The fund will help about 300 new businesses over the next 7 years. The contribution agreement with the RDÉE Ontario will be used to hire four employees who will provide professional advice and training to SMBs in Francophone communities in Southern Ontario. The Agency estimates that 1,500 business owners will be reached through this initiative. As for the contribution agreement with the Assemblée de la francophonie de l’Ontario, it supports an internship program for young people in Southern Ontario, enabling 10 not-for-profit organizations and 6 businesses to hire trainees.

2.1.6 Western Economic Diversification Canada

Western Economic Diversification (WD) is the regional economic development agency active in Manitoba, Saskatchewan, Alberta and British Columbia. Under the Roadmap, WD received $3.2 million for EDI implementation.

WD developed a 2011-2016 action plan for implementing the Official Languages Act in order to incorporate the Act and the Roadmap into its regular activities. For its part, the EDI is implemented in partnership with the four Francophone economic development organizations (FEDOs) that have been members of WD’s Western Canada Business Service Network since 2001. The Commissioner of Official Languages of Canada cited the FEDOs as a best practice and recommended that the other federal agencies look closely at this model.[106]

WD is involved in a number of areas, including youth employability in rural OLMC and economic development in bilingual municipalities. It also works to equip Francophone business owners to access capital, training and information for launching or developing their businesses. These business owners benefit from visibility and networking opportunities during international business forums. Western Francophone communities, like those in the territories, are involved in tourism projects.

2.2 Enabling Fund for OLMC (Human Resources and Skills Development Canada)

Along the lines of economic development, the Roadmap contributes to the Enabling Fund for OLMC. This 5-year $69 million fund is within the Human Resources and Skills Development Canada (HRSDC) portfolio.

According to HRSDC officials, the Enabling Fund supported the operations and activities of 14 national, provincial and territorial not-for-profit organizations, including the Réseau de développement économique et d’employabilité Canada (RDÉE Canada), 12 provincial and territorial RDÉEs, and the Community Economic Development and Employability Corporation (CEDEC) representing the interests of Quebec’s Anglophone communities.

HRSDC builds on the capacity of these economic development and employability networks to forge partnerships with the private, public and not-for-profit sectors:

The RDÉE and CEDEC networks create hubs for community-based partnerships. They support an integrated approach to local economic and human resources development, and they have undertaken innovative projects that respond to local needs.[107]

CEDEC told the Committee that the Roadmap provides leverage:

Since 2008, CEDEC has leveraged over $7 million in direct investment in community-based economic development initiatives. These funds are generated by partners, thanks to the $2.7 million per year received from HRSDC’s Enabling Fund, an important component of the Roadmap. During the last fiscal year alone, CEDEC has leveraged directly $2.9 million, or $1.07 for every dollar contributed by the Enabling Fund.[108]

3. Evidence and recommendations

The Roadmap investments for implementing the Economic Development Initiative (EDI) and the Enabling Fund were generally appreciated by the OLMC. The Assemblée de la francophonie de l’Ontario spoke about the progress on economic development made possible by the Enabling Fund:

Economic development was one of the areas for action under the Roadmap. In Ontario, we note the contributions by the RDÉE, which has had access to the Enabling Fund for Official Language Minority Communities of the Department of Human Resources and Skills Development. That funding permits sustainable economic development and the full-fledged participation of our fellow Francophone citizens.[109]

The Community Economic Development and Employability Corporation (CEDEC) also highlighted the Roadmap’s benefits for Quebec’s Anglophone communities:

The Roadmap has contributed enormously to our community’s vitality and has enabled CEDEC to play a critical role, optimizing the economic potential of English-speaking communities in Quebec and seizing opportunities for job creation and economic growth.[110]

3.1 For ongoing support

As with any area of government involvement, the witnesses reminded the Committee about the importance of ongoing federal support for promoting OLMC economic development. According to RDÉE Canada:

The funding paid by our main funding agency unfortunately does not enable all our provincial and territorial RDÉEs to provide services and support to start-ups or even existing businesses for economic capacity development or to industries or economic sectors. Its objective is to build community capacity in the human resources development sector, in other words employability, which covers only part of the sectors we have
to support.[111]

CEDEC also raised the importance of ongoing support to forging partnerships and developing sustainable initiatives:

Community economic development is a long-term process that requires effective planning supported by sustained financial commitments from the federal government. This is essential if we are to establish meaningful partnerships that generate tangible results for our communities.[112]

Regarding economic development, the Committee focused on two key areas: access to minority-language employment services, and the cooperative model as an excellent approach to OLMC economic development.

3.2 Employability and access to employment services in the language of one’s choice

Employability, which refers to a person’s ability to gain and maintain employment, is a major factor in OLMC economic development, since it has a direct impact on community vitality. The inability of young graduates to find employment in their communities or regions undermines OLMC vitality. This is a concern, particularly for OLMC outside large urban centres.

The following section addresses the employability problems facing English-speaking Quebeckers, as well as problems that minority Anglophone and Francophone communities face in accessing employment services in their language.

In its report The Vitality of Quebec’s English-Speaking Communities: From Myth to Reality, the Standing Senate Committee on Official Languages acknowledged that the economic vitality of Quebec’s English-speaking communities depends on a number of factors, including the availability of well-paid jobs, business start-up services, and opportunities for developing language and vocational skills.

Statistics Canada studies confirm that Quebec Anglophones are facing an employability problem. They are underrepresented in the federal and provincial public service, two outstanding employers for young graduates. They are then forced to move to other provinces. Without question, this young “brain drain” has a major impact on the vitality of their home communities.[113] On this point, the Economic Development Agency of Canada for Quebec Regions told the Committee that they were committed to taking the necessary action to increase Anglophone representation and improve their performance under Part VI of the Official Languages Act. The Committee is pleased to see this commitment.

Youth Employment Services (YES Montreal) summed up in three points the problem with access to English-language employment services in Quebec. In 1997, the federal government signed an agreement[114] with the Government of Quebec under which it transferred employment responsibilities to the province. The Youth Employment Strategy is the only program still under federal responsibility. However, the federal government did not evaluate the impact of such a transfer on Anglophone communities. Consequently, the agreement did not contain language clauses guaranteeing that services would be delivered in the minority language.

The situation is similar for Francophones. The Fédération des francophones de la Colombie-Britannique (FFCB) explains the situation this way:

It is essential that we inform the members of the standing committee that the federal government must rectify the situation regarding funding transfers to the provincial government. The situation prevailing in British Columbia following the transfer of employment programs has not enabled Francophone organizations receiving services to continue offering the services that have been available for more than 10 years thanks to the federal government.

The language clauses included in the agreements entered into between the federal and provincial governments must include accountability mechanisms that are binding on both levels of government and that are developed in cooperation with the community.
We would like the federal government to renew the Roadmap, while implementing mechanisms that enable the communities to access the programs that are managed at the national level.[115]

In Quebec, this lack of planning resulted in the inadequate availability and funding of English-language services. Current resources are inadequate to meet the growing demand for employment services in Quebec’s Anglophone community. According to YES Montreal, the number of clients has grown from 500 in 1995 to 4,400 in 2011.[116] Furthermore, the agency serves over 1,000 clients at its centre, but Emploi-Québec provides only enough funding for 380 users.[117]

According to YES Montreal, this lack of resources has consequences for the future of communities:

The job market, especially for the individuals that our organizations serve, is not improving and the cases we are all seeing have become more complex. In addition we are seeing more people who are experiencing mental health problems as a result of the stress associated with unemployment.[118]

As mentioned earlier, the lack of resources is being felt even more acutely outside of Montréal. The Economic Development Agency of Canada for Quebec Regions told the Committee that it supports a long-term Youth Employment Services strategy to ensure adequate services in English in the regions of Quebec.[119]

The second problem noted by YES Montreal concerns the rapidly growing number of centralized government and para-government service agencies. They provide hardly any services in English unless they are in a region with a critical mass of Anglophones. As well, their growing numbers are changing how funding is allocated:

Much of the funding that once went to community organizations is now being funnelled through these Para‐government organizations in spite of the fact that many of these organizations, including Emploi-Quebec, refer clients to our already overburdened services.[120]

This situation could ultimately mean the end of community agencies providing employment services. According to YES Montreal, this is a worst-case scenario, since community agencies take a holistic approach to employability:

They help new immigrants integrate into the community. They help retain youth and they provide support so that families with handicapped children can remain in Quebec.[121]

The Committee is disappointed that the Government of Canada failed to insert clauses protecting OLMC language rights into agreements when transferring its employment responsibilities to the provinces and territories. The government must develop mechanisms allowing it to evaluate the impact of such decisions on OLMC rights and vitality. The Committee is pleased to learn that certain federal institutions such as the FedDev Ontario use a filter, a tool that assesses the impact on OLMC of creating and cancelling projects. The federal government should develop similar mechanisms and ensure that they are systematically used.

YES Montreal acknowledged the Roadmap’s contribution and the work of the Economic Development Agency of Canada for Quebec Regions, Canadian Heritage and Human Resources and Skills Development Canada in expanding English-language employment services in Quebec. To assist Francophones, Industry Canada and the economic development agencies have developed trainee programs to promote youth employability.[122]

Being able to access employment services in one’s language of choice is a major factor in OLMC economic and community development. A future horizontal official languages initiative could help build capacity and expand the availability of minority-language employment services. Consequently, the Committee recommends:

Recommendation 14

That the Government of Canada, in a future horizontal initiative for official languages, provide the necessary support to official language minority community networks and organizations that deliver employment services and that special attention be paid to the needs of regional communities, youth and seniors.

3.3 Seniors, employability and economic development

In the 2008-2013 Roadmap, health care was the only area to receive funding specifically geared to seniors. While health care is a priority, seniors have other concerns as well. As explained by the Quebec Community Groups Network (QCGN), “For our generation, we don’t need just health services; we want access to second jobs […].”[123]

The fact that young retirees and seniors are returning to the labour market provides clear evidence that Canada’s labour market is changing:

Since our population is aging, we will start to see shortages in the labour force starting in 2013. Immigration is one solution, but we think measures should be put in place to enable seniors, retirees and older workers to continue working or to return to the labour market.[124]

The Fédération des aînées et des aînés francophones du Canada (FAAFC) provided an interesting profile of young retirees and seniors looking to return to the labour market. After leaving the labour market for two or three years, some young retirees want to come back part time. Many of them held the same job for years. Consequently, they are less familiar with the ins and outs of looking for work. As a result, they need support services, possibly in the form of mentoring. It is interesting that quite a few of them are looking for a different kind of job than what they used to do. This means that their successful return to the labour market depends in large part on the “transferability of skills.”[125] As for employers, they need be made aware of the issue to remove biases against seniors seeking employment.  

In addition to access to employment, seniors also want to be actively involved in their community’s development. This can be seen for example in the emergence of tourism networks for seniors. These networks allow seniors from different regions to travel more easily and to form bonds as part of exchanges. This type of project helps forge partnerships with private businesses.

Seniors expect to be able to access a full range of services in the official language of their choice. This makes it important to take a horizontal approach to organizing and delivering seniors’ services. Access to information on the services available to seniors was one issue raised by the Quebec Community Groups Network (QCGN):

They [seniors] want to know how to access, in their language, information about services. While government officials look for programs and services, seniors want to know where to go—and not only seniors, but caregivers. There is a big concern that they cannot understand well enough or get services because they don’t know where they are.[126]

The QCGN and its partners are working on building a seniors’ network[127] to allow the various stakeholders to identify the priorities and needs of Anglophone seniors and to develop a strategy for coordinating service delivery.[128]

The Committee believes that seniors and retirees can play a critical role in OLMC socio-economic development. The Committee points to the Human Resources and Skills Development Canada’s (HRSDC) New Horizons for Seniors Program, which enables a wide range of organizations to develop various initiatives that meet the changing needs of communities. A future Government of Canada horizontal official languages initiative could build on the work that has been done in this area.

3.4 The cooperative model and the economic development of official language minority communities

According to the Conseil canadien de la coopération et de la mutualité (CCCM), the cooperative model played an essential role in integrating OLMC into Canadian economic life:

Cooperative development is a serious, effective, transparent and democratic business model. [...] The strength of the cooperative model has been proven. An analysis of the survival rate of cooperatives conducted by the Quebec Ministry of Economic Development, Innovation and Export in 2008 showed that cooperatives have a much longer lifespan than private Quebec businesses. Four in 10 cooperatives have been in business for more than a decade, compared to two in 10 for all Quebec businesses. […] [This] model [...] can be adapted to all sectors of activity and businesses of all sizes.[129]

According to the CCCM, this is an interesting model since it promotes the creation of new businesses and suggests innovative solutions:

In addition, the Canadian government is currently making a significant effort to strengthen the Canadian economy and permit the creation of new businesses. In the circumstances, it could choose to cooperate closely with the cooperative movement to develop innovative and sustainable solutions.[130]

The Société de l’Acadie du Nouveau-Brunswick confirmed that cooperatives have been successful in the Atlantic communities:

… New worker cooperatives are emerging. We have success stories. For example, the Lamèque fishing cooperative is one of the biggest cooperatives. A cooperative fish plant is a success story. The Fédération des caisses populaires acadiennes has 200,000 members out of a population of 240,000 inhabitants. That represents a penetration rate of approximately 75%. I believe that’s undeniable.[131]

Franco-Nunavuteers, for their part, founded the Conseil de la coopération du Nunavut in 2009. This organization promotes sustainable development and social entrepreneurship in harmony with Northern cultures and communities, while at the same time promoting the interests of Nunavut’s Francophone community.[132]

The cooperative model is well-established and fosters economic development and job creation in OLMC. Consequently, the Committee recommends:

Recommendation 15

That the Government of Canada, as part of a future horizontal initiative for official languages, incorporate the cooperative model into its socio-economic development strategies for official language minority communities.

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