INTRODUCTION

 

Vancouver and Whistler (British Columbia) will be hosting the 2010 Olympic and Paralympic Winter Games.  There are a number of partners involved in this event:  the Government of Canada, the Province of British Columbia, the Organizing Committee for the 2010 Olympic and Paralympic Winter Games in Vancouver (VANOC), the Canadian Olympic Committee, the Canadian Paralympic Committee, the Municipality of Whistler and the City of Vancouver, in consultation with the Four Host First Nations Society.  Francophone organizations and provincial governments (Quebec, in particular) have also been asked to work together with VANOC to organize and stage this event.

One of the goals of the study by the Standing Senate Committee on Official Languages was to identify the methods used by the organizers to take the official languages into consideration in organizing the Games.  The Committee notes that the preparations for the 2010 Olympic and Paralympic Games are going well.  Most of the partners have good intentions when it comes to promoting the official languages at this event.  A clear commitment has been made by the government of Canada and VANOC, and this bodes quite well for the official aspects of the Games’ organization, such as the ceremonies, signage in the host cities, security services and emergency services. 

Despite these findings, there are still a number of challenges to ensuring the full and fair consideration of the two official languages at the 2010 Games.  The Committee feels that concrete and immediate action must be taken to guarantee compliance with linguistic criteria in the selection of host cities, in the provision of adequate funding for French-language organizations in setting up projects for the 2010 Games, in the representation of French-language communities in VANOC and in the cultural celebrations associated with the Games, in the broadcasting of the Games to the entire English and French audience and regarding bilingual signage outside the host cities.  The 2010 Games must set the standard of respect for the two official languages and this is why the Committee is committed to verify progress made by all partners over the next three years.

In terms of access to high-performance sport, the Committee noted during its public hearings that English and French did not always have the same status in the Canadian sport system.  Despite all the hard work by Sport Canada and national sports organizations, in many areas there is still a lack of respect for linguistic duality in the Canadian sport system.  All the witnesses agreed that much remains to be done to guarantee an equitable offer of services and support mechanisms for athletes in both official languages. 

The report is divided into three sections.  The first summarizes the role of the major partners in the organization of the 2010 Olympic and Paralympic Games.  The second describes the specific challenges associated with the consideration of the two official languages in the organization of the Games.  The third section presents an environmental scan of the linguistic barriers to high-performance sport in Canada. 

 

 

I.  THE ROLE OF THE PARTNERS([1]) IN THE ORGANIZATION OF THE 2010 GAMES

 

The 2010 Olympic and Paralympic Games Federal Secretariat, an integral part of Canadian Heritage, is the focal point for the Government of Canada’s participation in the 2010 Winter Games.  The federal government has two principal roles to play in organizing the Games.  First, it supplies all of the essential services:  the admission of goods and persons into Canada, protection of intellectual property and spectrum management, meteorological services, public health and safety, safety planning, sustainable development and tax issues.  It is also providing funding of $552 million.  Two-thirds of that amount will be devoted to infrastructure and legacy. 

The British Columbia Olympic & Paralympic Winter Games Secretariat, under the province’s Ministry of Economic Development, is coordinating the provincial government’s participation in the 2010 Winter Games, and will ensure that the Games will have social, cultural and economic spin-offs for everyone in the province.  The Government of British Columbia has committed to paying a total of $600 million for the Games organization, with three-quarters of the amount earmarked for direct costs related to the Games, and for sports-related commitments and legacies.

VANOC, a non-profit organization established to organize the Games, has a mandate to promote the development of sport in Canada by planning, organizing, financing and staging the 2010 Winter Games.  Its board of directors has 20 members representing the partners:  seven from the Canadian Olympic Committee (COC), three from the Government of Canada, three from the province of British Columbia, two from the City of Vancouver, two from the Municipality of Whistler, one from the Canadian Paralympic Committee (CPC), one from the Squamish and Lil’wat First Nations, and one member nominated by the 19 other members. 

The COC, a national, not-for-profit organization, is responsible for all aspects of Canada’s involvement in the Olympic movement, including Canada’s participation in the Olympic Games.  It appoints the athletes, coaches and the support personnel representing Canada.  It selects the Canadian city that will submit a bid to host the Olympic Games to the International Olympic Committee (IOC).  It manages a wide variety of cultural and educational programs promoting Olympic values in Canada.  It participates directly (but not financially) in organizing the Olympic Games when they are held in Canada.  In addition, it provides funding for support programs for athletes, coaches, national sport federations and Canadian sport centres across the country. 

The CPC is a national, not-for-profit organization that delivers programs that strengthen the Paralympic movement in Canada and prepares the Canadian Paralympic team for the Games.  It participates in the development of sports at all levels for people with physical disabilities.

Vancouver and Whistler will be required to provide services within their jurisdiction and within their normal financial framework (e.g., fire and rescue services, street cleaning and maintenance, parking operations, etc.).  They are also involved in the construction of the Olympic facilities within their territories.

 

 

 

II.        CONSIDERATION OF THE OFFICIAL LANGUAGES

 

English and French are the official languages of Canada, pursuant to section 16 of the Canadian Charter of Rights and Freedoms; English and French are also the official languages of the International Olympic movement, according to Rule 24 of the Olympic Charter.  French is not, however, a recognized official language within the International Paralympic movement.

The Federal Policy for Hosting International Sport Events([2]) sets out the conditions determining the federal government’s participation in organizing international sports events, such as the Olympic Games.  It requires compliance with federal standards under the Official Languages Act.  Groups wishing to obtain financial assistance from the federal government must state in their application how communications and services to the public will be provided in both official languages and their approach to involving the linguistic minority in the organization and hosting of the event.

On 14 November 2002, all the partners signed the Multiparty Agreement for the 2010 Winter Olympic and Paralympic Games.([3])  The Agreement clarifies individual roles and responsibilities for the Games organization.  An appendix to the Agreement entitled “Canada’s Official Languages Requirements” lists the criteria that VANOC undertakes to respect (see Appendix D).  While the appendix is addressed primarily to VANOC, all the partners agreed on the importance of taking both official languages into account in organizing this event.  The preamble to the Agreement mentions that the Games are an opportunity for the partners “with respect to Olympic activities, […] to present themselves to the public and the Olympic family in both official languages.”([4])  Section 8 of the Agreement recognizes that English and French are the official languages of the Games.

In the last two Olympic Games, held in Athens and Turin, a Grand Témoin was appointed by La Francophonie to observe the role and use of French in the organization of the event.  The report submitted by Lise Bissonnette, Grand Témoin for the Turin Olympic Games, shows that, depending on the aspect of the organization considered, French maintain its status or lost ground as an official language of the Olympic movement.([5])  French played an especially marginal role in terms of business, sports commentaries at competition sites, the media, signage outside the host city, the entertainment element of the ceremonies, and the language of work at meetings.  In other words, French was increasingly marginalized both as a language of work and as a language of communication.  

 

A.  Language Criteria for the Selection of Host Cities

 

According to the evidence the Committee heard during its study, it would appear that respect for the official languages is not one of the criteria used by the IOC in designating a host city for the Olympic Games.  This is likely attributable to the fact that there is no binding regulatory framework in Rule 24 of the Olympic Charter on the use of English and French as the official languages of the Olympic Games.  The Committee thinks this is a deplorable state of affairs, and is also disappointed to see that French is not a recognized official language in the International Paralympic movement.

On the basis of her experience as Grand Témoin de la Francophonie for the Turin Winter Olympic Games, Lise Bissonnette told the Committee, “We should be telling cities which make a bid to stage the Olympics that they must make commitments set in stone when it comes to official languages, and they will have to demonstrate how they intend to meet these commitments.  It is quite a different situation when steps are taken beforehand rather than waiting for a city to be chosen […].”([6])

According to the COC, language criteria were not considered in assessing Canadian bids for the 2010 Games.  “None of them presented their bid from that angle and my recollection is that no questions specifically of that nature were asked. […] there was an assumption that all would be up to the task, being in Canada.”([7])  The Committee believes it is important to inform applicant cities at the outset of the criteria they will have to meet in terms of the official languages if they are successful in their bid for the Games.  The COC cannot merely assume that the applicant cities have good intentions.  It must ensure that it obtains an official commitment in terms of official languages from the applicant cities along with their bid submission.

 

Recommendation 1

 

That the federal government ensure that the COC, in selecting Canadian cities to bid on hosting the Games, require an official commitment from applicant cities to meet official languages requirements.

 

The Committee would like, however, to point out that VANOC and its partners did make a commitment regarding official languages early on in the process, signing the Multiparty Agreement on 14 November 2002, more than six months before the IOC announced the name of the host city for the 2010 Games.  According to the Honourable David Emerson, “This is the first time in the history of the Games that specific provisions with respect to official languages have been integrated into such an agreement.”([8])  The inclusion of official languages issues in the Agreement allows us to be optimistic about the future.  However, as the Fédération des francophones de la Colombie-Britannique (FFCB) told the Committee, “it is in practice, and in the details, that we will be in a better position to judge the real commitment of the parties involved in organizing the Games.”([9])

 

B.  The Official Language Minority Communities

 

One of the official languages priorities of the Government of Canada is to “encourage members of Francophone communities across Canada to get involved in the Games and seize the opportunities that stem from the event.”([10])  From the outset, the French-language community in British Columbia showed its interest in being involved in the Games organization. 

 

We want to help stage exceptional Olympic Games, which will demonstrate that Canada’s bilingualism is a key part of our identity, and something that the whole country can be proud of.  Indeed, for us, the 2010 Olympic Games will be an opportunity to showcase our linguistic duality, to share it with thousands of athletes and tourists who come and visit us, as well as millions of TV viewers who will be watching the Games.([11])

 

During the public hearings, the Committee noted some confusion about the roles and responsibilities of the various Francophone organizations involved in the organization of the Games.  The FFCB represents the Francophone community of British Columbia.  The Fondation canadienne pour le dialogue des cultures (the Foundation) is a legally constituted organization created in 2004 whose goal is to promote and sustain dialogue and rapprochement between Canada’s Francophone and Acadian communities and the components of Canadian society (Francophones of Quebec, Anglophones, ethnocultural communities and Aboriginal peoples).  The Foundation and the FFCB were identified as key partners with VANOC in rallying the forces and coordinating the participation and presence of the Francophone and Acadian communities across Canada, on the one hand, and the Francophone communities in British Columbia, on the other.

A collaborative protocol was signed in June 2006 between VANOC, the FFCB and the Foundation (see Appendix E).  The protocol encourages the use of both official languages in preparing and staging the 2010 Games.  It states:

 

The Canadian Francophone Community, in particular the Francophone Community in British Columbia, wish to use the opportunities offered by the 2010 Games to continue developing their community at large, to increase their profile and visibility and also to provide VANOC with the support needed to deliver on their Official Languages commitments, particularly in the areas of the volunteers’ recruitment, cultural and educational programs.([12])

 

The Foundation and the FFCB will provide observations and advice to VANOC in areas such as cultural, economic and community development.  The Foundation has established a national committee and four subcommittees to define possible actions in various fields:  tourism, business, education, youth, culture, sports and recreation.  The Francophone community will take action in three spheres: 

 

[…] first, it will provide direct services to VANOC by identifying resources, talents and products and respond to express, specific requests.  Second, it will contribute to the related activities of the Games, through, for example, public facilitation, welcoming tourists and promoting the activity; and, lastly, by promoting public participation across the country, by introducing activities and products inspired by the Games, both before and after the event.([13])

 

The Committee feels that the protocol for collaboration does not clearly delimit the roles of the Foundation and the FFCB in connection with the 2010 Games.  Despite the evidence heard, confusion persists about the mechanisms established to ensure representation of the Francophones of British Columbia, Quebec and the rest of the country.  It is difficult for the Committee to understand how activities are coordinated among VANOC, the Foundation, the FFCB and the Government of Quebec in order to ensure the promotion of linguistic duality during the Games.  It thus insists that the federal government ensure that the roles of these various partners are clarified. 

 

Recommendation 2

 

That the federal government clarify the roles that VANOC, the Foundation, the FFCB and the Government of Quebec are to play in connection with the Games in order to promote linguistic duality and the representation of the various components of the Canadian Francophonie.

 

The Société de développement économique de la Colombie-Britannique (SDECB) and the Conseil culturel et artistique francophone de la Colombie-Britannique (CCAFCB) will provide support to the FFCB and the Foundation for their relevant sectors.  The SDECB has approached VANOC with regard to offering workshops outside British Columbia in order to inform private firms of business opportunities related to the 2010 Games.  To date, workshops have been held in the western provinces and in Quebec.  For its part, the CCAFCB is hopeful that the Games will be a showcase for the Francophone community of British Columbia and its artists and artisans.  It intends to be involved in a wide range of events and activities before, during and after the Games to ensure that Francophone culture is strongly represented.  “The CCAFCB would like to contribute to the organization of the cultural component of the 2010 Olympic Games through the Games’ cultural programs by making available its expertise, its network and its experience.”([14])

The French-speaking population of British Columbia hope that the Games will provide an opportunity for Francophones to meet and help the rest of the world learn more about them.  A representative from the Chambre de commerce franco-colombienne told the Committee that he hoped the Maison de la Francophonie in Vancouver “will be a place where Francophones can meet during the Games and afterwards it will continue to serve not only Francophones from this region, but also Francophones from elsewhere who will have come to know Vancouver because of the Games.”([15])  The Committee is of the view that this would be an excellent way to promote the development of the Francophone community in British Columbia both during and after the Games.

When it appeared before the Committee in Vancouver, the FFCB said that it had had enormous difficulty in obtaining long-term funding from the federal government to support its activities relating to the 2010 Games.  At that time, it had only $40,000 until 31 March 2007 to carry out its activities.  For its part, the Foundation stated that it has received about $100,000 for the first year.  The collaborative protocol with VANOC mentions that “the FFCB and Foundation will continue to deal directly with Canadian Heritage and other ministerial bodies with regards to funding necessary for their projects related to the 2010 Games.”([16])  

To date, the Francophone organizations of British Columbia have not observed any substantive support from the federal government in their efforts to carry out their Games-related activities.  According to the FFCB:

 

It is crucial that Canadian Heritage, which is the department charged with coordinating the federal Olympic effort, convince us that it takes its leadership role seriously and that the Government of Canada will go to whatever lengths are necessary, particularly from a financial standpoint, to ensure that official languages commitments are honoured and that the province’s Francophone community is fully involved in a collective effort.([17])

 

The CCAFCB is also having difficulties in the area of funding.  The only financial assistance that it has managed to secure to date has come from 2010 Legacies Now, a non-profit organization in British Columbia. 

The Committee recognizes that all the partners involved in organizing the 2010 Games are showing an interest in ensuring that the French language and culture are displayed during the event.  However, good intentions are not enough.  The Government of Canada must commit to providing suitable funding for the efforts and the needs of the Francophone organizations taking part in setting up and staging these Games, including the Francophone organizations in British Columbia. 

 

Recommendation 3

 

That the Department of Canadian Heritage recognize that there are Francophone organizations in British Columbia and that it recognize these groups and ensure that there is sufficient funding for their legitimate projects for the 2010 Games.

 

C.  Staff and Volunteers

 

Over the next few years, VANOC will have to fill nearly 1,200 permanent positions, 3,500 temporary positions and 25,000 volunteer positions.  VANOC appears to be on the right track in terms of respect for linguistic duality within its organization.  A language policy will be implemented in the near future.  VANOC has taken steps to ensure the establishment of a bilingual work environment.  To date, it has offered French courses to some 70 employees at all levels.  VANOC has also developed a strategy to guarantee the recruitment of staff and volunteers who are able to learn the two official languages.  Mobilizing enough staff members and volunteers who are able to provide services in both languages, and even in other languages, is an enormous challenge.  A representative from VANOC said that more than one-third of the organization’s current employees are bilingual.([18])  For his part, the Mayor of Vancouver has said that he would be encouraging municipal employees and residents in the city who speak French to volunteer for the 2010 Games. 

Lise Bissonnette told the Committee that a special effort had to be made to recruit staff and volunteers from minority French-language communities: 

 

I know quite well the French-speak[ing] communities from outside of Quebec, and I think it is very important that they be asked to work, not only as volunteers but also as part of the organization, because that is the problem.  We need people not only to greet tourists but also to work with journalists and to work in the organization to remind people that they should work in both languages.([19])

 

The FFCB shares the view that it is important to have representatives from the French-speaking community on the various VANOC committees.  “We believe that if we are able to work together from the very beginning rather than when problems arise that together we will make the 2010 Olympic Games a model for success at every level, including in the eyes of the Grand Témoin.”([20])  The Foundation has promised to follow up with VANOC to ensure that a sufficient number of bilingual people are hired by the organization.  The Honourable David Emerson told the Committee, “You have my assurance that in our discussions with VANOC, we will ensure that there is a substantial cadre of Francophone and French-speaking volunteers and employees. […] [W]e have to ensure that there will be a prominent number of French-speaking people involved and participating in whatever way is required.”([21])

The Committee is of the view that, in order to guarantee a significant representation of Francophone interests within VANOC, Francophones must be involved in decision-making.  VANOC must provide information as soon as possible about the strategies it plans to implement to ensure the representation of Francophone communities within the organization, in general, and at the decision-making level, in particular.  One of the methods proposed by the Committee would be to appoint a member representing French-language communities to the VANOC board of directors.  This suggestion was welcomed by the Foundation and VANOC representatives.  The members of the board are designated by the seven other partners (federal, provincial and municipal governments, COC, CPC and the First Nations).  The Committee therefore encourages the federal government, in cooperation with the other partners, to designate a representative from the French-language communities to the VANOC board of directors. 

 

Recommendation 4

 

That the federal government provide information about the strategies VANOC plans to implement in order to ensure the representation of Francophone communities within the organization, by June 2007. 

 

Recommendation 5

 

That the federal government, in cooperation with the other partners, immediately begin to work toward the appointment of a representative from the French-language communities to the VANOC board of directors. 

 

D.  The Events (Ceremonies, Festivals, Exhibitions)

 

In general, there is respect for the use of English and French during the Games opening and closing ceremonies.  However, particular attention must be paid to representing cultural diversity and linguistic duality during the 2010 Games.  VANOC is aware of its responsibilities in this regard.  The Multiparty Agreement states that the program for the ceremonies must include participants and events that represent both official language groups (see Appendix D).  VANOC will receive support from the federal government to ensure that the image of Canada presented during the ceremonies is an accurate reflection of our country’s bilingual and multicultural reality.  A representative from Heritage Canada told the Committee that:

 

[N]o decisions have been made yet concerning either the closing or the opening ceremonies. […] [T]here is no question that these ceremonies must reflect the diversity of the country.  It is not only a question of quality, but a question of representation.  We are examining ways to ensure the objectives we have in our minds will be reflected through these ceremonies and that Canadians from all backgrounds will be proud of what they see on television. […] We will be working with VANOC to ensure that it will happen.^([22])

 

Federal government representatives have on a number of occasions shown their commitment to reflecting our linguistic duality during the 2010 Games.  The Honourable Josée Verner said that “the Government of Canada, in collaboration with the organizing committee and British Columbia, wants to project to the world not only the excellence of its athletes and the richness of its culture but also the image of a strong country, proud of its linguistic duality.”^([23])

The Committee is of the opinion that this commitment must extend beyond the Games period.  All the Games-related events held before or afterward must reflect Canada’s linguistic duality.  Francophone and Francophile artists and artisans from all parts of the country must be given a place of honour.  The CCAFCB told the Committee it was concerned about the fact that cultural programs were lagging behind the organization schedule for these Games.([24])  The Foundation representatives replied that they would be making sure “that the Francophone community is well represented in all events.  There were some abuses at first, but I think we will be trying to avoid any in future.”([25])  VANOC is prepared to reflect linguistic duality in the various cultural celebrations that will be held as part of the Games, but it believes that it does not yet have the necessary funding to do so.  One of its representatives said:

 

You really should not conclude too quickly that everything we will be doing regarding cultural celebrations will be in English if there is not enough money.  We are going to strike a balance between English and French.  We do not have enough money to do everything we want, but everything we do will be balanced, to show the linguistic duality of English and French.([26])

 

The Committee would like to remind VANOC that it is important to reflect all the dimensions of the Canadian French-language community.  Programs for cultural celebrations must include artists from Quebec, French-speaking artists from the official language minority communities (in British Columbia and the other provinces), as well as artists from ethnocultural communities. 

 

Recommendation 6

 

That the federal government urge VANOC to ensure that all facets of Canada’s French-language community are represented in the programs for cultural celebrations that are held before, during and after the Games. 

 

 

E.  Broadcasting

 

The broadcasting contract for the 2010 Olympic Games has been awarded to Bell Globemedia/Rogers Media consortium by the International Olympic Committee⁽[27]⁾.  On television, coverage will be provided principally by the CTV (English) and TQS (French) networks.  Cable satellite television subscribers will be able to view rebroadcasts of the Games on TSN, RSN, RDS, OLN, RIS, OMNI.1 and OMNI.2.^([28])  On radio, coverage will be carried on Rogers Radio, an array of 46 local stations across Canada.  The Games will also be broadcast on Bell Mobility and Rogers Wireless mobile platforms. 

As the contract between the IOC and the Bell Globemedia/Rogers Media consortium currently stands, a number of Canadians will be unable to watch the Games in their own language.  According to Lise Bissonnette:  “The people who will be denied access to the Games coverage in their own language will mostly be Francophones who live outside Quebec, because there is limited cable access to French-language programs.”([29])

With regard to radio and television coverage, the Multiparty Agreement states in section 13.1 that:  “The Parties will make reasonable efforts to ensure that domestic radio and television broadcasts of the Games by the Canadian broadcast rights holders for the Games are in French and English.”([30])  This clause is hardly binding.  Under the contract awarded to the Bell Globemedia/Rogers Media, Francophones outside Quebec who are not cable or satellite subscribers and who depend on over-the-air broadcasts will not have access to Games coverage in French. 

The federal government acknowledges that improvements must be made in this area.  “There are very clear expectations regarding coverage and accessibility for Canadians.”^([31])  VANOC expressed similar expectations: 

 

We will try to work together with CTV and the other partners to see whether we can do something else.  It is always a challenge for us, but you can rest assured that our purpose, our philosophy, is to share the Games with all Canadians across Canada.  We do not have all the solutions or answers to our questions, but we will continue working on it.([32])

 

The Bell Globemedia/Rogers Media has agreed to make the French television signals (RDS, RIS and TQS) available free of charge to all cable and satellite providers outside of Quebec during the Games.  However, this does not solve the problem of access to Games broadcasts over the air.  As Graham Fraser said, “We need to find a solution to ensure that broadcasting of the Games is accessible and of equal quality, in both official languages, for the benefit of all Canadians.”^([33])  He suggested that the Bell Globemedia/Rogers Media consortium look into the possibility of a partnership – with the Société Radio-Canada (SRC), for instance. 

In a letter dated 16 February 2005, the consortium offered the SRC the opportunity to distribute the TQS signal free of charge outside of Quebec.  The SRC turned down the offer almost immediately.  During its appearance before the Committee, the SRC described its mandate under the Broadcasting Act.  The SRC explained the reasons why it found the consortium’s offer unacceptable: 

 

The first criteria we established is equity for all Francophones in Canada. […] If we reach an agreement for areas outside Quebec, certain Francophones living in Quebec who do not receive over-the-air TQS service will not receive the signal. […] Second, to our mind, services must be of high quality and they must be fair to all Francophones and Anglophones.  We have statutory obligations to provide equitable service.  Therefore, we must make sure that as a broadcaster, we are indeed providing equitable service.  The services must meet quality standards. […] We cannot simply hand over our airways without maintaining a certain level of control over the quality of what is been broadcast on our airways.  We also believe that there must be distinct programming for Francophones. […] The issue is not a simple one.  For us, the network’s integrity remains fundamental.([34])

 

The SRC said it was open to negotiating an arrangement with the Bell Globemedia/Rogers Media consortium, as long as it was “the result of a fair negotiation based on sound management of public funds and quality, distinctive broadcasts targeted specifically to French- and English-speaking audiences.”([35])

Speaking before the Committee, a Canadian Heritage representative said, in connection with the problems of access to Games programming, “we are not yet very concerned about this because we know that the parties are making a genuine effort to find solutions.”^([36])  The Committee believes, however, that time is passing.  If the SRC is to be part of the solution to the problem, it must be in a position to plan the changes that it will have to make to its programming well ahead of time.  The Bell Globemedia/Rogers Media consortium has said it is ready to work on finding a solution to this issue.  The Committee hopes that the partners involved in organizing the Games, particularly the government of Canada and VANOC, will work together with the consortium in order to find as soon as possible a way to guarantee equitable access that is of equal quality to broadcasts of the 2010 Games for all Canadians. 

Recommendation 7

 

That the federal government and VANOC work together with the Bell Globemedia/Rogers Media consortium to find, before
31 December 2007, a solution that guarantees equitable access that is of equal quality to 2010 Olympic Games programming for all Canadians. 

 

Graham Fraser, Commissioner of Official Languages, expressed concerns about the unequal coverage of broadcast hours for the Games on the English-language and French-language networks.  The consortium’s commitment to coverage is broken down as follows:  1,117 hours for English-language coverage, 550 hours for French-language coverage and 100 hours for multilingual coverage.  A consortium representative told the Committee:

 

We will offer more French-language coverage of the Winter Games than there has ever been on Canadian television.  In all, there will be 550 hours of French-language broadcasting on RDS, RIS and TQS combined.  This is 30 per cent more than the number of hours of French-language coverage of the Winter Games in Turin, and more than twice the number of hours of French-language coverage of the 1988 Winter Games in Calgary, the last time the Olympic Games were held in Canada.^([37])

 

Under the current arrangements, virtually all of the Olympic events will be covered by the English and French networks.  The difference in the number of broadcast hours is accounted for, according to a consortium representative, by greater coverage on the English specialty channels and repeats of programming on the English-language side.^([38])  The Committee has noted these comments but still finds the situation disturbing.  Canada is a bilingual country and English and French audiences are entitled to expect that they will receive services that are equal and of comparable quality. 

As regards production, the Bell Globemedia/Rogers Media consortium has said that the French-language networks will be engaged in designing and programming French content.  “It is important to note that all coverage on TQS, RDS and RIS will be original French-language broadcasting, designed and carried out by French-speaking teams including over 100 journalists, technicians, producers and directors on location in Vancouver.”^([39])

When the Committee members travelled to Vancouver, they noted that the only French-language programming available in the hotel where they were staying was the SRC channel.  As a number of tourists will be in Vancouver for the 2010 Games, the question is what will happen to Francophones who want to watch Games broadcasts in French in their hotel room.  According to the SRC, “[i]t is the hotel operator or the cable service provider who may decide not to receive French-language signals.  That decision is left up to them; however, they must get Radio-Canada’s signal.”([40])  Vancouver’s Mayor told the Committee that a list could be drawn up of all the hotels in Vancouver to ensure that they provide French programs during the 2010 Games.([41])  The Committee believes that hotels in Vancouver and Whistler should enable their clients to have access to the signal from at least one of the three French private networks (TQS, RDS or RIS) during the Games. 

 

Recommendation 8

 

That the federal government, in cooperation with VANOC and the municipal governments, urge hotels in Vancouver and Whistler to offer their clients access to the signal from at least one of the three French private networks (TQS, RDS or RIS) during the Games. 

 

F.   Cooperation With the Other Provinces

 

All of the witnesses heard during the course of this study said they hoped the 2010 Games would have a positive economic, social and cultural impact for Vancouver, Whistler, British Columbia and Canada as a whole.  When he was Treasury Board President, the Honourable John Baird told the Committee:  “I have had the opportunity to meet with the organizers of the Vancouver Olympic Games and they are quite aware of the fact that it is not simply Vancouver’s Olympic Games but that Canada of course is the host of those games.  They are working with the other regions so that the benefits are felt across Canada.”([42])

In October 2005, VANOC signed a partnership agreement with the Government of Quebec (see Appendix F).  The Agreement is one of VANOC’s strategies to creating Games for all Canadians.  The Agreement deals with matters including high-performance athlete training, business opportunities and recruiting employees and volunteers from Quebec.  Since Quebec is a predominantly French-speaking province, the Agreement also recognizes the importance of promoting Quebec culture and the French language.  Section 9 of the Agreement states that: “VANOC and Quebec […] agree to promote cooperation between Quebec civil society and Francophone community organizations across Canada” (see Appendix F).  Again, the Committee wants to reiterate the need to clarify the responsibilities required from VANOC, the Foundation, the FFCB and the Government of Quebec as regards the promotion of linguistic duality. 

To date, none of the other provinces has signed a similar agreement with VANOC.  The Committee believes that VANOC could well benefit in social, cultural or economic terms from cooperation with provinces other than Quebec.  With regard to the official languages, New Brunswick could certainly make a significant contribution to VANOC in terms of respect for linguistic duality.  There is no need to point out that New Brunswick is the only officially bilingual province in the country.  Other provinces could also share their expertise in terms of relations with minority French-language communities.  A number of witnesses heard by the Committee mentioned that VANOC was willing to enter into such negotiations.  The Committee strongly encourages it to do so.

 

G.  Provision of Services and Signage

 

The COC has shown that it is committed to providing services in both official languages to Canadian athletes.  The support team selection process “ensures that Canada’s athletes at the Games are able to communicate with the support team staff members with whom they deal at the Games in either official language.”([43])  The same is true for the coaches.  “We at the Canadian Olympic Committee ensure that at an Olympic Games and in our interactions with coaches, there is an unqualified comfort for French-speaking coaches to receive the services they require in order to coach their athletes or to bring their athletes to the Olympic Games in the language of their choice.”([44])  Furthermore, the COC’s policy is to replace bilingual signage in the areas where the Canadian athletes and coaches live and congregate.  “The COC ensures that all signage in and about Canadian offices and residences in the Olympic Village and at Canada Olympic House is in both official languages.”([45])

The CPC has also made a commitment to respecting both official languages and providing bilingual services to Canadian coaches and athletes.  “An athlete or a coach may ask for information and services in the language of his or her choice.  This is something we have always insisted on doing and I think the athletes are well served.”([46])  A number of Paralympic athletes come from the Francophone community in Canada, and the Canadian Paralympic movement has a great deal of support from the French-speaking public.  The CPC must therefore communicate with the athletes, the coaches and the public in both official languages.

The Mayor of Vancouver told the Committee that he was going to “work very hard to provide services in French.”([47])  He mentioned that there were plans to launch a 311 telephone service before 2010 that would be operational 24 hours a day, seven days a week, providing services in a number of languages, including French. 

For its part, VANOC undertakes to provide security, emergency and medical services in both official languages.  The same goes for services provided to the athletes, the coaches and technical officials.  Members of the public should also receive services in the language of their choice on all the sites operated by VANOC.  The Multiparty Agreement mentions that third parties providing services on behalf of VANOC must do so, the extent reasonably possible, in both official languages (see Appendix D). 

VANOC will provide signage related to the Games in both official languages.  In her report entitled La place et l’usage de la langue française aux Jeux olympiques d’hiver de Turin 2006, Lise Bissonnette gave examples of problems with signage outside the host city and the competition venues.  The Multiparty Agreement mentions that bilingual signs must be installed at all Games sites, such as the athletes’ village and competition venues.  There is no reference, however, to the obligations of the various partners outside the cities of Vancouver and Whistler.  What will happen to the people travelling between Vancouver and Whistler, or between the airport and one of these two cities?  Will they have access to signs in their own language?  

It does not make sense that members of the public would be guaranteed access to bilingual signs and services at the Vancouver International Airport, the Vancouver train station and the competition venues, but be denied it when they travel between these locations.  With regard to services, Royal Canadian Mounted Police representatives told the Committee that the 2010 Games were an excellent opportunity to promote Canada's linguistic duality.([48])  The RCMP has a plan in place for providing bilingual services at the Games, which involves deploying bilingual officers in addition to the officers already assigned to British Columbia, in order to ensure that more staff are able to provide services in the two languages. The Committee commends the RCMP on its initiative. It is, however, concerned about the impact the plan may have on the provision of bilingual services elsewhere in the country during the Games. In providing evidence to the Committee, an RCMP representative said, “The fact is that we are going to have to reduce our bilingual capacity across Canada in order to provide services at the Olympic Games.”([49]) The Committee would like to remind the RCMP that it should meet its linguistic responsibilities throughout the country during the Games.

On the issue of signage, the Committee recommends that, during the Games Period, measures be taken to provide bilingual signage on the major highways between the airport and the host cities, between the train station and the host cities, and between the host cities themselves.  The Committee believes that Canada, through VANOC, must demonstrate exemplary behaviour by agreeing to provide bilingual signage and services on the major roads’ segments to be used frequently by the travelling public during the Games.

 

Recommendation 9

 

That the federal government urge VANOC to install bilingual signs on the major roads linking the Vancouver International Airport, the Vancouver train station and the host cities. 

 

H.  Communications and Promotional Products

 

In terms of communications, VANOC appears to be on the right track.  Its Web site is entirely bilingual.  All the press releases, reports and other official documents available through the Web site are available in both languages.  VANOC has said that it uses the minority-language newspapers when placing job notices for positions to be filled within the organization.  The Multiparty Agreement mentions that all promotional and public information material produced and distributed by VANOC and all public address announcements at the Games venues will be in both official languages (see Appendix D). 

Good intentions in terms of communications are also visible at the municipal level.  The Mayor of Vancouver told the Committee that French content would be developed for the city’s Web site before 2010.([50])

Lise Bissonnette pointed out that, these days, the Olympic Games have a significant commercial aspect.  Speaking of the Olympic Games in Turin, she said, “I could talk about this subject at length; it was unfortunate, sad, some days it was funny, but French was barely on the radar.  From the airport to Olympic merchandise, including pencils, clothing, head gear, and anything else which was for sale, as soon as money was involved, French disappeared.”([51])  With regard to sponsors, a representative from VANOC said, “The challenge will be to work with international companies, which do not necessarily have the two languages as a criterion.”([52])  VANOC will not impose respect for language criteria on the international sponsors, but it does intend to make them aware of the issue.  Some, but not all, of the national sponsors already provide bilingual services. 

The Committee feels that Canada’s linguistic duality should be reflected everywhere, including in the commercial aspect of the Games.  The Committee understands that VANOC is not involved in the selection of international sponsors.  However, it is highly desirable that national sponsors provide services in the two official languages at the Games.  VANOC must ensure that the private firms with which it does business understand and implement the official languages obligations that it has committed to respecting.  Resources, such as translation services, could be made available to businesses with insufficient abilities in this regard.  At the very least, VANOC should provide information services to the sponsors and explain what is expected of them in terms of official languages. 

 

Recommendation 10

 

That the federal government urge VANOC to make public the strategies it plans to use to encourage sponsors and private firms to provide services in both official languages, by June 2007.

 

III.      OFFICIAL LANGUAGES IN THE CANADIAN SPORT SYSTEM

 

The structure of the Canadian sport system is complex.  It is made up of organizations that provide sports programs and services at the national, provincial/territorial and municipal levels.  Those organizations deal with a particular sport or work with several sports that have common needs.  They receive financial assistance from governments according to the programs and services they provide. 

In a study published in 2000, the former Commissioner of Official Languages, Dyane Adam, found that French and English did not always enjoy the same status in the Canadian sport system and that administrative structures were inadequate to manage its programs in both official languages.^([53])  In a follow-up study done in 2003, the Commissioner said:  “The bilingual capacity of NSOs [national sports organizations] does not yet meet expectations with regard to services provided by national offices and language training for coaches.  This has repercussions on the overall development of French-speaking athletes, many of whom are still being coached by unilingual coaches as part of national teams.”^([54])  Sport Canada has told the Committee that it has implemented all of the recommendations contained in these two reports by the Commissioner of Official Languages. 

As a federal institution, Sport Canada must comply with the requirements set out in the Official Languages Act (OLA).  It must ensure that the national sport organizations with which it signs contribution agreements comply with the requirements of the OLA in respect of services to the public.  Those organizations agree to provide athletes with services in the two official languages.  The same is expected of Canadian sports centres and multisport service organizations.  A representative from the Department of Canadian Heritage told the Committee:  “We take measures to ensure that organizations under its patronage provide better services through athletes, coaches and others, and that we continue to work closely with the entire sporting community in order to meet these common objectives.”^([55])  Sport Canada has developed a funding framework that contains criteria that are tied specifically to official languages.  The Honourable Peter Van Loan told the Committee that the government commits “about $1 million each year for specific initiatives of national sports organizations and multisport service organizations, to address official language priorities.”^([56])

The Canadian Sport Policy, endorsed by the federal, provincial and territorial governments in 2002, contains provisions for ensuring the provision of services in the two official languages by sports organizations, and states:  “National sport organizations organize, govern, and regulate their sport in Canada; [they] provide essential services in English and French for the development of athletes, coaches, officials and administrators.”^([57])  The Policy on Sport for Persons with a Disability announced by the government in 2006 does not, however, contain such provisions.

In 2005, Sport Canada commissioned a study entitled Linguistic Barriers to Access to High Performance Sport.⁽[58]⁾  The study showed that the main barriers facing high-performance athletes are financial and geographical, rather than linguistic, in nature.  The study contained a number of recommendations stating that Sport Canada must: 

 

·         set an example in respecting both official languages;

 

·         encourage the promotion of linguistic duality and the offer of quality services in both official languages within national sport organizations and Canadian sport centres, and on their Web sites;

 

·         more effectively monitor coaches’ language skills;

 

·         implement a promotion campaign to inform athletes about the services available to them in the two official languages;

 

·         implement, with the cooperation of provincial sport organizations, a campaign to promote bilingualism in competitions at the provincial level;

 

·         encourage mentoring between athletes from the two language communities;

 

·         evaluate, in cooperation with the provinces and territories, the effect of linguistic barriers on athletes, particularly the elite, at the provincial level;

 

·         establish strategic alliances with organizations representing the official language minority communities. 

Sport Canada set up a working group to develop an action plan to apply the recommendations.  A representative from the Department of Canadian Heritage told the Committee that this was a very complicated issue to resolve because “not all sporting organizations have the same capacities. […] We know that there are organizations which function very well, while some have had greater problems.  When we look at the figures for the last few years, we see that progress has been made, and that we are going in the right direction.”^([59])  The CPC is also of the opinion that linguistic capacities differ from organization to organization⁽[60]⁾.

For its part, the COC has stated that it does not have the necessary authority to guarantee that national sports organizations provide services in both official languages to Canadian athletes and coaches. 

 

[W]e have no authority [because] the national sport federations are independently organized and operated. […] One could say that perhaps indirectly we might, because they do receive some of their funding from the COC, but the funding is very small for most, if not all, national sport federations compared to the funding they receive through the Sport Canada contributions, which would have a much greater impact upon what they might or might not do.([61])

 

According to the COC, French-speaking athletes rarely use the simultaneous interpretation services available to them.

Sport Canada acknowledges that a great deal remains to be done to ensure that French-speaking athletes have fair and equitable access to high-performance sport.  At the moment, its efforts are focused primarily on delivering bilingual services to the members of the national sport organizations.  “The athlete must be Sport Canada’s central focus; therefore, the coaching services, technical documents, team documents and communication that support the athlete are the areas we focus our initial efforts.”^([62])  Efforts are also underway to make the organizations’ Web sites bilingual, and to translate key documents for the athletes and trainers. 

The Committee recognizes that Sport Canada has made a major effort over the past few years to ensure that the official languages are considered more equitably within Canada’s sport system.  The situation is still far from perfect.  The Committee will be paying close attention to the activities of the working group set up to apply the recommendations made in the Access to High Performance Sport study.

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CONCLUSION

 

The evidence heard during the Committee’s study shows that, in planning large-scale events such as the Olympic and Paralympic Games, it is essential to explore the methods to be used and criteria to be met by the partners involved at the outset to ensure that all aspects of Canada’s linguistic duality are fully reflected.  In an ideal world, cities applying to host the Olympic Games would have to meet conditions imposed by the IOC guaranteeing respect for the two official languages in their bid.

The 2010 Olympic and Paralympic Winter Games in Vancouver and Whistler must set the standard of respect for the two official languages, both within Canada and throughout the entire Olympic movement.  This commitment was made by the Honourable David Emerson and by VANOC representatives when they appeared before the Committee.  In order to reach this goal, however, each and every one of the partners must make it a priority.  In addition, of course, this requires adequate financial resources.

With regard to the 2010 Games, the former Commissioner of Official Languages, Dyane Adam, told the Committee:  “It is moving forward and there are committed people, but it is like all federal institutions; you never take it for granted.  We must watch over it, be there and be supportive.”^([63])  For its own part, the Committee is confident that preparations for the 2010 Games are moving ahead in the right direction.  Nonetheless, vigilance is still required in terms of respect for the two official languages by the various partners.  This is why the Committee is firmly committed to having the partners appear before it again, over the next three years, in order to ensure that they are still committed and to verify progress made in promoting Canada’s linguistic duality at the Games.

All Canadians expect that the 2010 Olympic and Paralympic Winter Games will portray their lives, their values and their pride in belonging to Canada.  Canada must take this golden opportunity to reflect its linguistic duality at an event that is local, national and international in scope. 

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