Official Languages Commissioner concerned about bilingualism in the public service

Commissioner of Official Languages of Canada Raymond Theberge holds a press conference at the National Press Theatre in Ottawa on Tuesday, May 7, 2024. (Sean Kilpatrick/The Canadian Press)

Canadian Official Languages Commissioner Raymond Théberge says he is concerned about the federal government’s inability to comply with requirements regarding employee bilingualism, as dictated by the Official Languages Act.

In his annual report, released on Tuesday, the commissioner notes that progress has been made following his recommendations but says what he describes as a systemic problem remains very real.

He points out that of the five recommendations affecting all of the institutions concerned, four have been partially implemented, while the fifth has not been implemented at all.

“Federal institutions have had two years to act on my recommendations. I must therefore urge these institutions to put in place more formal plans and mechanisms to support the full implementation of my recommendations,” he writes.

Unilingual supervisors

Théberge places particular emphasis on the issue surrounding second language proficiency among public service supervisors.

The report comes three days before the Treasury Board of Canada Secretariat was set to move forward with its plan to “raise the minimum second language proficiency requirement for bilingual supervisory positions that oversee staff working in a region designated as bilingual for language of work purposes.”

He points out that “all supervisors in designated bilingual regions — not just those in bilingual positions — must have the necessary skills to respect the right of employees to be supervised in the official language of their choice.”

Théberge says he sees these changes as “a step in the right direction, but I am concerned about the fate of staff supervised by unilingual incumbents or those who do not meet the language requirements.”

He adds he is concerned that the responsibility is being placed in the hands of the federal institutions themselves.

He says he is recommending that the Treasury Board president “establish a monitoring mechanism for federal institutions, which will have to ensure that measures are put in place and maintained to protect the language rights of employees in designated bilingual regions who are supervised by unilingual incumbents and by those who do not meet the language requirements.”

He points out that, under the modernization of the Official Languages Act, “the right to work in the official language of one’s choice will apply, as of June 2025, to all public servants whose position is located in a bilingual region for language of work purposes, regardless of the linguistic designation of their position.”

The commissioner acknowledges that “its implementation will not be without challenges. Measures will have to be taken to ensure that employees are well-informed of their rights and supervisors of their obligations.”

700 bilingual offices

At the same time, amendments to the Official Languages Regulations have led to a review of their application based on the 2021 census, in order to confirm which offices should be required to offer services in both official languages.

The commissioner notes that the Treasury Board Secretariat expects approximately 700 offices to be designated to offer bilingual service.

However, he laments, implementing these new offices could prove difficult.

“According to my contacts in the regions, managers point out that they expect difficulties in recruiting bilingual staff and that language training budgets do not allow for a rapid increase in their bilingual capacity.”

At the same time, he notes that budget cuts have been affecting the federal public service for several months.

“Unfortunately, experience shows us that, in such a context, it is too often the official language obligations that are considered superfluous in federal institutions and end up being subject to budget cuts,” he said.

He is recommending that all federal administrators “ensure that their organizations respect and take into account language obligations and rights when implementing budget cuts in the federal public service” by May 30, 2027.

Privy Council: lack of accountability

Théberge also reprimanded the Privy Council Office — which is, in a sense, the prime minister’s department — after investigating the State of Emergency Commission, which was tasked with assessing the merits of declaring a state of emergency to end the occupation of Ottawa by truckers and other protesters.

This report by The Canadian Press was first published in French on June 17, 2025.