[Translation]
Mr. Chair, committee members, good morning.
I'd like to begin by acknowledging that we are meeting on the traditional territories of the Algonquin nation.
Thank you for inviting me to appear before this committee to talk about the use of indigenous languages in House of Commons proceedings.
My name is Stéphan Déry and I am the Chief Executive Officer of the Translation Bureau. Here with me is my colleague, Matthew Ball, Vice-President of Service to Parliament and interpretation.
The translation bureau provides translation and interpretation services in indigenous languages to the House of Commons and the Senate on an as-needed basis, when requested by Parliament. For example, during the meetings of this committee of the last few weeks, it is the bureau that ensured interpretation services in indigenous languages. For these reasons, we maintain an up-to-date list of approximately 100 interpreters who work in 20 different indigenous languages.
Before going into greater detail about our services in indigenous languages, allow me to speak briefly about the bureau.
[English]
Established in 1934, the Translation Bureau has its foundation in the Translation Bureau Act, which mandates it to serve departments and agencies as well as the two Houses of Parliament on all matters related to the translation and revision of documents, as well as interpretation, sign language, and terminology.
We are the sole in-house service provider to one of the world's largest consumers of translation services, the Government of Canada and Parliament, which makes us a major player in what is, in every sense, a global industry. Our translation services are available 24 hours a day, seven days a week, via secure infrastructure, and in over 100 languages and dialects.
In concrete terms, the bureau fulfilled approximately 170,000 requests in 2017-18, mostly for translation, or nearly 305 million words for departments and agencies and over 49 million words for Parliament.
In official languages, we provide over 5,000 days of interpretation for Parliament, nearly 7,000 days of conference interpretation, and over 4,500 hours of closed captioning for sessions in the House of Commons, the Senate, and your committees. Lastly, we supply over 9,700 hours of visual interpretation.
[Translation]
I now would like to talk to you about what we do for indigenous languages. The data that I just mentioned contextualizes the translation bureau's current capacity in providing services in indigenous languages.
The bureau is well equipped to meet the current demand, in particular through partnerships it has established over time with a number of indigenous organizations. Our mandate is clear: we are here to serve Parliament.
If Parliament chooses to increase the demand for services in indigenous languages, as the exclusive provider of language services, the translation bureau will regard it as its duty to meet that demand.
[English]
Requests for services in indigenous languages are few and far between compared with the overall volume of translation and interpretation requests for all languages combined. Thus, of the 170,000 translation and interpretation requests we handled in 2017-18, approximately 760, or 0.5% of the total volume, involved indigenous languages. Of those 760 requests, nearly 85% were for Inuit languages. The other requests were spread among 28 language combinations.
As for interpretation, requests from the House of Commons and Senate committees have totalled 33 days of interpretation in indigenous languages since 2016, primarily in Cree—East and Plains—Inuktitut, and Dene.
[Translation]
In 2009, the bureau worked with the Senate on a pilot project aimed at providing interpretation services in lnuktitut to senators Charlie Watt and Willie Adams, stemming from one of the recommendations in the fifth report of the Standing Committee on Rules, Procedures and the Rights of Parliament. Pursuant to the affirmation of aboriginal rights of the first nations, the report recommended that the use of lnuktitut be allowed in Senate deliberations, in addition to English and French.
The interpretation services were provided on several occasions, and the senators seemed pleased with the service provided. However, although greater capacity has been established in lnuktitut than other indigenous languages, identifying interpreters with parliamentary experience proved to be a challenge.
[English]
I would like now to touch on two operational challenges for the bureau.
First, your committee has discussed the possibility of using remote interpretation services.
The Translation Bureau conducted a pilot project in 2014 to test the viability of such a service. While the results were encouraging, there are still issues that need to be addressed before we can offer this service on a regular basis. The two key issues are audio quality and bandwidths, which can be erratic, resulting in variable audio quality for interpreters and clients alike. We are committed, though, to continuing to explore this possibility further as technology improves.
Second, as other witnesses before this committee have explained, since there are approximately 90 indigenous languages and dialects in Canada, the capacity of skilled interpreters is limited. The translation bureau's ability to assess their language skills is equally restricted.
This capacity is based in part on the limited demand for this service. Should Parliament create a more sustained demand, the bureau would be prepared to play an active role in increasing capacity, in partnership with indigenous communities and organizations. Over time, this service could be offered to Parliament on a regular basis, thus contributing to the preservation of indigenous languages in Canada.
[Translation]
I would now like to describe the work the bureau has undertaken to foster new relationships and build new partnerships, in anticipation of an increased demand, which would support the government's objective to renew the relationship between Canada and indigenous peoples.
We have assigned a senior interpreter to assess the bureau's capacity, and then leverage our expertise in linguistic services. We want to develop strategic partnerships to enhance capacity development. To do so, we are in contact with the Assembly of First Nations, Inuit Tapiriit Kanatami, the Inuit language authority, and the Grand Council of the Crees, as well as with training institutions such as the Arctic College of Canada and the First Nations University of Canada.
We are also working in partnership with the University of Alberta's Canadian Indigenous Languages and Literacy Development Institute, to promote the interpretation field amongst students, over the coming summer.
Since 2003, we have also been working regularly with the Government of Nunavut, among other things to provide terminology training to Inuit translators. The focus of our most recent project, in 2017, was our terminology tool, Termium, for which we created a terminology directory that now contains some 2,300 records in lnuktitut.
In other words, Mr. Chair, we are always looking for new avenues that will allow us to broaden our partnerships and increase our pool of indigenous language translators and interpreters. As indicated earlier, we are meeting the current demand and are taking the necessary steps to build a pool of additional resources.
[English]
In conclusion, I'd like to draw your attention to the new vision for the translation bureau, which is to make it a world-class centre of excellence in language services. This vision is notably based on the need to strengthen the bureau's ties with its employees and clients, but also with its partners. It also relies on training and the next generation of language professionals. These are the foundations on which we intend to build, if you, the Parliament, request services from the bureau in indigenous languages on a more consistent basis. Our mandate is clear: we are here to serve Parliament.
In closing, I would like to underscore the work of our interpreter in the interpretation booth near us, thanks to whom today's meeting has taken place in both official languages.
Thank you for your time and attention. I would be pleased to answer any of your questions.
:
Thank you for your question. I would be happy to answer it. This is a very important question.
I will assume that the committee agrees with the recommendations made by Mr. Wolvengrey, a witness who appeared before the committee. He recommended that you focus on the interpretation of the four or five best known indigenous languages or of languages spoken by parliamentarians.
The following is just speculation. Parliament could decide to provide interpretation services in an indigenous language once a week, on Fridays, for example. The department I work for will therefore ask for proposals to ensure that we have contract interpreters. They will not be able to say that they are not available to work in Parliament on Friday because they have another contract. Every Friday, or every two weeks, they will serve Parliament by interpreting in the chosen languages.
Thanks to Parliament’s new facilities in the West Block, barriers are coming down. Right now, there are two interpretation booths, as you know. It is therefore difficult to interpret in a third language. Temporary booths should be installed, which would require more equipment. In the new West Block facilities, three booths have been installed. This allows for more interpretation in a third language, whether indigenous or other languages, when there are guests.
Since those barriers are coming down, it should be easier to provide this service if Parliament so requests. It is difficult for me to answer that question, because it is speculation and it will depend on the number of languages that we will be asked to interpret. However, I think it could be put in place quite quickly, unless we are asked to interpret the 90 indigenous languages and dialects, which might be very challenging. If we choose languages for which there are local interpreters, it will be much easier. In addition, if the demand is steady, we can make arrangements more easily to meet requests. Interpreters must also have parliamentary experience, which is very important in Parliament.
:
Mr. Chair, members of the committee, thank you for inviting me to appear before you today on the use of indigenous languages in proceedings of the House of Commons.
By way of background, I am the Director of the Official Languages and Bilingualism Institute and the Associate Dean of the Faculty of Arts at the University of Ottawa. I'm also an Associate Professor.
My main field of research focuses on the educational, social and political dimensions of developing advanced literacies. I am particularly interested in educational approaches that promote the academic and social success of language learners.
My research highlights the importance of languages as a means of socialization and integration. They carry values and cultures. They are often the tool for identity building and social construction par excellence. Learning to use a new language is developing skills that facilitate communication with another person. It is also a way of opening oneself up to new ways of understanding and expressing the world.
Languages are therefore powerful political tools and language policies, which seek to preserve, encourage and develop the multilingual identity of individuals in society; they are seen all over the world as important tools to ensure a better mutual understanding and greater openness to others in this world that is increasingly marked by diversity and the need for “intracultural” and “intralinguistic” exchanges.
This vision of language learning and the benefits of multilingualism is, of course, at the heart of Canada's major policies. Canada has long been a leader in the field of language teaching and language policies that seek to promote French and English bilingualism in our particular context.
In terms of the topic being studied by this committee, although the discussions in Canada have often revolved around the issue of learning French and English, I confirm that universities are now expressing a growing interest in programs and initiatives that also focus on the development of indigenous languages and literacies.
This interest reflects the recommendations of the Royal Commission on Aboriginal Peoples in 1996 and the Truth and Reconciliation Commission almost 20 years later. Both of those documents have dealt with the issue of indigenous languages and call for initiatives to stop their decline or, consequently, to encourage their development.
I think there is no doubt that allowing the use of indigenous languages in proceedings of the House of Commons would serve to advance those recommendations.
Allowing the use of indigenous languages in proceedings of the House of Commons would enhance the symbolic status and function of indigenous languages at the federal level. This simple act of making indigenous languages visible and heard as part of the activities of the House of Commons, the elected legislative branch of Parliament, would result in enhancing these languages, the communities attached to them, and the contributions of indigenous peoples to Canadian heritage.
To achieve this goal, it is important to remain flexible and to keep in mind a number of factors, including the great diversity of Canada's first peoples—Inuit, Métis and first nations—their needs and the unique setting of the House of Commons. Nevertheless, the task is not impossible, in my opinion. I think we could, in fact, be inspired by similar initiatives that have been previously taken in Canada.
For example—I'm sure this has already been discussed—the 1988 Northwest Territories Official Languages Act, which is now almost 20 years old, already recognizes in section 6 that: “Everyone has the right to use any Official Language in the debates and other proceedings of the Legislative Assembly.” Subsection 7(3) states that: "Copies of the sound recordings of the public debates of the Legislative Assembly, in their original and interpreted versions, shall be provided to any person on reasonable request.”
Similarly, the 2008 Nunavut Official Languages Act recognizes the same rights. Subsection 4(1) of the act recognizes that: “Everyone has the right to use any Official Language in the debates and other proceedings of the Legislative Assembly.” Subsection 4(3) states: “Copies of the sound recordings of the public debates of the Legislative Assembly, in their original and interpreted versions, shall be provided to any person on reasonable request.”
In my opinion, the House of Commons could adopt provisions similar to those of the Northwest Territories and Nunavut. We could also envision procedures similar to those proposed by the Senate that allows the use of an indigenous language, and offers simultaneous interpretation and translation services, provided reasonable notice is given.
From the perspective of applied linguistics, allowing members of the House of Commons to speak in an indigenous language would not only recognize their right to express their culture and language during debates, but would also allow all members of the House of Commons and Canadians nationwide who listen to these debates to gain from the values and beliefs encoded within indigenous languages. All languages have their own distinct ideals and ways of thinking, and that is often something that draws people towards languages different from their own. It is what the Report of the Royal Commission on Aboriginal Peoples, entitled “Looking Forward, Looking Back”, called “a fundamentally different world view [that] continues to exist and struggles for expression whenever Aboriginal people come together”.
Such provisions, as well as the potential sharing and enhancing of existing Senate resources would allow the House of Commons to send a strong signal of support for preserving, promoting and revitalizing indigenous languages, as well as acknowledging the special place indigenous peoples have in Canadian society.
However, to successfully implement this type of legislative measure—I am sure that you have also talked about this a lot—the Government of Canada and the House of Commons will have to implement strategies and invest resources.
I will now focus on one of these measures. Just as the Government of Canada did the day after passing the Official Languages Act in 1969, this type of initiative would probably require an investment to make sure that universities include the indigenous languages of Canada and indigenous language teaching in the curriculum, as well as train teachers. They will also need to train translators and interpreters to provide a pool of translators and interpreters, as well as a new wave of professional interpreters who will be necessary for the success of this new legislative measure.
In my opinion, this investment and interest expressed by the Government of Canada would have a significant multiplier effect. An investment would help put indigenous languages on par with other modern languages, and would show young students everywhere who are interested in indigenous languages studies that they could actually have careers as teachers, translators and interpreters. In my opinion, this would be an attractive virtuous circle.
This investment would also meet one of the recommendations of the “Truth and Reconciliation Commission of Canada: Calls to Action” document:
We call upon post-secondary institutions to create university and college degree and diploma programs in Aboriginal languages.
An initiative such as the one we've discussed today would invigorate this type of recommendation.
When the Official Languages Act was originally implemented, the translation bureau had to face the same challenges, that is, finding a pool of interpreters. Translation students were recruited directly on campus. Some students were even offered an incentive that would allow their university years to count in their pension plans if they worked at the translation bureau. Those positive measures allowed universities to develop those programs, and allowed the government to have a pool of highly qualified translators and interpreters, who are now internationally respected due to the quality of their work.
Clearly, the demand for translation and interpretation will not be as large. On the one hand, the demand will be far more arbitrary and ad hoc if the legislative measures resembled those adopted by the territories. On the other hand, the source of the demand would be very diversified, because of the dozens of indigenous languages commonly spoken today, which isn't something to consider when systematically translating between French and English, our two official languages.
Notwithstanding these differences, it is essential for Parliament to be able to depend on well trained and qualified human resources. That is why I emphasize that the House of Commons and the Government of Canada could not only count on universities, but also on the expertise and collaboration of indigenous communities and their elders to supply and train interpreters. I am convinced that they would be greatly interested in any initiative that would allow their languages to be brought to life and heard in the public sphere. Allowing children, young people and seniors the opportunity to hear their language being spoken at the heart of Parliament would be a very powerful gesture.
This is where I will end my presentation. Thank you for listening to me. It would be my pleasure to answer questions from the members of the committee.
:
Good afternoon, Mr. Chair, members.
[Witness speaks in Cree]
To my family, hello.
My name is Melissa Saganash. I'm the Director of Cree-Québec Relations for the Grand Council of the Crees. I also serve as a member of the James Bay Regional Government technical committee, so I have the honour of working with Johanne Lacasse every so often. I'm also a member of the the Waswanipi Cree first nation of James Bay.
Today our presentation will essentially cover topics pertaining to general provisions of the governance model of the Eeyou Istchee James Bay Regional Government and primarily on key factors of our practical experience in the implementation of the multi-language simultaneous translation that is used by our citizens, in French, English, and Cree.
To set you in context of how and why we are in the position to deliver such a service, it's important to understand the essence of a particular agreement that was signed with the province and the Cree nation.
On July 24, 2012, the Government of Quebec signed an agreement with the Cree nation government, known as the Agreement on Governance in the Eeyou Istchee James Bay Territory between the Crees of Eeyou Istchee and the Gouvernement du Québec. This historic agreement resulted in the abolishment of the former Municipalité de Baie-James, where only mayors of the municipalities and localities of James Bay would govern, and led to the creation of the Eeyou Istchee James Bay Regional Government. This new structure now includes a seat at the table for each elected chief in addition to the mayors of the territory—a first of its kind in the country. This agreement provides for the modernization of the governance regime that once prevailed in the territory, and promotes the inclusion of the Eeyou in decision-making powers.
Essentially, the Eeyou Istchee James Bay Regional Government now provides significant Cree participation in decision-making over shared lands and resources. The new regional government reflects a vision of a path for our territory based on the noble principles of inclusiveness, democracy, and social harmony.
:
I would like to share a brief description of our designated territory, the territory of Eeyou Istchee James Bay. As you probably know, it's within the federal ridings of Abitibi—Baie-James—Nunavik—Eeyou and Abitibi—Témiscamingue.
The territory covers a large portion of northern Quebec, which is between the 49th and 55th parallel in Quebec. It's approximately 277,000 square kilometres if you include all the category III lands of our territory. Of course, that excludes category I and II lands, as well as the municipal territories. We have four municipalities and nine Cree communities.
Overall, we're looking at a territory that represents approximately 17% of the territory of Quebec. We are considered the largest municipality in the world. If we look at the population density, that represents approximately 0.05 inhabitants per square kilometre. The estimated population is approximately 20,000 Cree and 17,000 Jamesians.
If we look at the composition of our local governance, Eeyou Istchee James Bay Regional Government local governance is carried out by way of the council of the regional government, which for its first 10 years is to be composed of 11 Cree representatives, 11 Jamesian representatives and one non-voting representative that is appointed by the Gouvernement du Québec.
The Cree representatives consist of the grand chief and the deputy grand chief of the Grand Council of the Crees and the Cree Nation Government, and nine members that are chiefs of the Cree communities elected by the board council of the Grand Council and the Cree Nation Government.
As for the Jamesian representatives, they consist of elected members of the local municipal councils, the majority of which are mayors, and of course, some of the councillors of Chapais, Chibougamau, Lebel-sur-Quévillon, and Matagami, as well as the non-Crees in the Eeyou Istchee James Bay territory.
If you look at the governance model and the concept of the regional government, our regional government is subject to Quebec's Cities and Towns Act, which in this case is pertinent today as it requires a public call-for-tenders process for all our professional services.
The chairman of the council is designated in alternation by representatives of the Cree and the representatives of the Jamesians for a two-year mandate, so they alternate every two years.
A minimum of six regular council meetings are held per year. Our council meetings are held at various locations throughout our territory, including the Jamesian municipalities, as well as our nine Cree communities. The locations of our council meetings are held in an alternate manner, which means a Jamesian municipality followed by a Cree community, and so on, which represents three regular council meetings in Cree communities and three regular council meetings held in one of our four municipalities.
Also, what's interesting here is that our council members may participate by telephone conference call for a maximum of once per year should they be unable to attend in person.
The documents tabled at council meetings and presentations are made available in French and English, and provided two weeks in advance whenever possible. We have an in-house translator who translates from English and French and vice versa.
Our simultaneous translation services are provided in English, French, and Cree during council meetings. Our council meetings are also broadcast live through live streaming, and broadcast live through Cree radio broadcasting in the Cree communities whenever possible.
:
We would like to share some of the considerations in the implementation of our simultaneous translation services. These are the more practical considerations that we were faced with when implementing our translation services.
As I mentioned earlier, the fact that we are subject to the Cities and Towns Act means that we are subject also to a call for a public tender process for our simultaneous translation services.
There is also the additional cost of providing simultaneous translation services. This is a major factor. The revenues of the regional government are basically—and I would say practically solely—based on the taxation revenues of the citizens of the category III lands of our territory. The costs are covered through the taxation revenues that are generated.
We've also considered the need to create a bank of qualified and available Cree interpreters who are hired on a contractual basis.
We've also taken into consideration the fact that we needed to compose with various Cree dialects in the territory, which means that there are the northern and southern Cree dialects and also the coastal and inland Cree dialects that were taken into consideration.
The technical aspects of the contents pertaining to municipal matters and our contents are of a very technical nature. They're dealing with municipal and land use planning matters, so we've taken into consideration those aspects. We've also foreseen the space that is required to accommodate translation booths and the work areas that are required for the technicians who accompany our interpreters. This means that we have one booth for the French and English interpreters. We have a second booth for the Cree interpreters. We also have a work area for the two technicians who accompany the four interpreters.
The cost, as I mentioned earlier, includes the translation fees and the lodging and travel costs. I would say that the overall translation cost represents anywhere from $100,000 to $150,000 per year for the regional government.
The fact is that we do hold our meetings in remote areas, and that includes as far north as Whapmagoostui, which does not have any access road. We do have a challenge with accessing reliable high-speed Internet in certain remote areas.
For access to reliable telephone communication lines, because of the fact that members do call in or join by conference call, it means that we need two separate telephone lines, one line to accommodate the English and French, and a second phone line to accommodate the members requiring Cree translation.
We have been experimenting with new technologies such as remote or distant translation, but we're not there yet, for the sole reason that we have to compose with different considerations—that is, we have the live streaming, we require the simultaneous translation, and there are the members who are joining in by phone—so we haven't yet arrived at identifying the possibility of introducing new technologies for remote translation. I was listening to the presentation earlier. It's very difficult. Our interpreters have mentioned to us that they prefer to be on location for the translation.
There's also radio broadcasting, so that's another consideration.
I would have to say that the added value to the quality of the implementation of our simultaneous translation services depends on the devotion and dedication of the regional government public services that are operating under time constraints and under a lot of pressure at certain times. In particular, our public servants have managed their way through an extensive administrative transformation to ensure that services are based on an inclusive approach for all citizens of our territory.
:
I will give you a very personal example.
I always keep young people in mind. Adults and seniors are important as well, but we often look to younger generations when we talk about the vitality of languages in communities. For minority language speakers, whether they speak an indigenous language or an official one, it is dangerous to believe at a young age that this language is a game. Even if our parents and grandparents speak to us in the language, we can sometimes believe that this language is a game, or that it is only used in a family environment. That has an impact.
What is interesting is that we often focus on the use of a language to communicate a message, but language is not only used for communication. At all times, it allows us to establish relationships and convey information on the social status of communities. As soon as children see that the language is used outside of their homes and immediate environments, that it is used in public, this tells them that it isn't a game: It is a real language that is recognized and used. Children then realize that they have every right to use it outside of their immediate environments. Also, it sends a message about the value given to the language by everyone in the public space.
This kind of effect is sometimes felt subconsciously. Young people, and even adults, are not aware of the influence it has on the way they see themselves and on the way they themselves use the language. But we know that this effect exists. For example, I grew up in a very English-speaking region of Prince Edward Island, but the fact that I knew that French was spoken in Parliament and in Quebec encouraged me to continue speaking the language. I saw it as a real language with value and a role to play.
In applied linguistics, we sometimes refer to collective imagination. In order to commit to a language, we need to be able to imagine what can be done with it, and envision a world in which this language has a meaning. Each time we lend languages validity and we see them used in all kinds of contexts, we enrich this collective imagination, which has a motivating effect.
:
Let me answer your first question.
It's true that the majority of the James Bay representatives are unilingual French speakers. As for the Cree representatives, they use Cree as a first language and English as a second one.
We are seeing more and more young, trilingual Cree representatives, but the majority of the people from James Bay are unilingual French speakers. Crees, on the other hand, speak Cree and sometimes English as a language of work.
In terms of the influence these initiatives have on young people, we have seen an increase in the number of young people interested in following this closely, whether by listening to live streams or to community radio. More and more people are contacting us for information on the vocation, mission and directions of the regional government. Young people feel very engaged with all the issues surrounding governance, especially when it concerns the territory where they live, such as the Eeyou Istchee James Bay territory.
Now, on the topic of budget expenditures, the regional government has an annual expenditure budget, excluding the three localities, of approximately $9 million. If we quickly do the math and we include all the costs, that's between $120,000 and $150,000. That is still considerable for a territory with so few taxpayers, so it's important that the council's elected officials and representatives champion interpretation services. Furthermore, the requirement to provide simultaneous interpretation services rests on the necessity of ensuring transparency and accountability, but it is especially a matter of inclusion.