Evaluation of WD's Official Languages Action Plan 2000-2004

Executive Summary

A . Purpose and Methodology

WD shares the responsibility for meeting the requirements of the Official Languages Act (OLA). WD's contribution to the implementation of the Official Languages Act is guided by a four-year Action Plan, which targets Part VII of the Act, particularly Section 41. The objectives of Section 41 are to enhance the vitality of the English and French linguistic minority communities in Canada; support and assist their development; and foster the full recognition and use of both English and French in Canadian society.

WD has relied on unique partnerships with other federal departments, provincial governments and the community, to enhance community economic development opportunities within Official Language Minority Communities (OLMCs). A key aspect of WD's Action Plan has consisted of introducing in 2001 Francophone Economic Development Organizations (FEDOs). The FEDOs offer a full range of business development services to the Francophone community throughout each province in Western Canada.

Objectives

This evaluation was initiated for two purposes. First, it is intended to meet accountability requirements to Canadian Heritage, who are responsible to report to Parliament under Section 42 of the Act. The second purpose is to provide timely, useful, relevant, and credible information on the continued relevance of the Action Plan. The objective of the evaluation is to assess the relevance, success and effectiveness, including strengths and weaknesses, of the implementation and outcomes of WD's Official Languages Action Plan.

Methodology

The evaluation was based on 30 key informant interviews with WD representatives, FEDO representatives, and stakeholders from other federal departments and the communities. Methodologies also included a documentation review and site visits in the four FEDOs. Fieldwork was conducted between September and November 2003.

B . Evaluation Findings

Relevance of Action Plan Content

Overall, evidence shows that the Action Plan was relevant. This partly stems from the consultations conducted with the communities. The creation of the FEDOs, in particular, is seen as very relevant as the CFDCs are not really meeting the specific needs of the Francophone communities.

Delivery and Design

Most observers agree that the Plan was implemented as planned, with minor but positive adjustments. Some challenges were encountered due to community expectations and turnover at WD.

FEDOs and WD are challenged by the fact that some community members perceive the FEDOs as being instrumental to other sections of the Official Languages Act, including those of Part IV. FEDO representatives also find that the WD coordinators' roles should be more clearly defined. WD coordinators are challenged by a heavy workload due to their coordinating activities as well as punctual translation and bilingual service delivery.

It is generally agreed that WD plays a pro-active role in collective federal department activities regarding Francophone communities. WD works with other Departments and governments.

Overall, respondents thought that the WD coordinators were able to prioritize issues and bring them to the Comité national de développement des ressources humaines de la francophonie canadienne . Many agree that there were extensive consultations prior to the finalization of the Action Plan and that the plan was widely distributed. Representatives from three FEDOs said that their organizations were not consulted.

Success

Findings indicate that WD and their partners were most successful in producing, "Economic development projects providing concrete results for the Francophone communities receiving funding", and "Better informed Francophone entrepreneurs." However, they were less successful in providing, "More accessible funds to Francophone SMEs and entrepreneurs". Only a limited number of loans have been coordinated so far by the FEDOs.

The evaluation also shows that the Action plan has contributed to the strengthening of the relationship between WD and the Francophone communities. Challenges in achieving this include lack of awareness of FEDOs in the community and dispersion of Francophone communities across large distances.

A number of projects supported by the Action Plan are expected to produce long-term results. Examples of successful projects include the "Corridor touristique francophone de l'Ouest" (CTFO) and "La Maison du Bourgeois". The objective of the Corridor touristique is to effectively promote the four Western Canadian provinces as tourist attractions for Francophone communities in Quebec, Western Canada and abroad. The project developed and coordinated promotional tools and events. Evidence shows that it has contributed to the increase in the number of Francophone tourists in selected sites in Western Canada.

In terms of assisting entrepreneurs, the evaluation findings show that the Action Plan has contributed to the development of better business skills and has better informed entrepreneurs. The FEDOs' capacity to leverage other sources of funds is perceived as a very positive outcome for the OLMCs.

Accountability and Performance Monitoring

Opinions were mixed as to the effectiveness of performance monitoring. Most WD respondents felt that they received relevant and timely reports. However, there are mixed opinions about whether the objectives were measurable.

Cost-Effectiveness

Most respondents of this study felt that the WD investments as part of the Action Plan were cost-effective. Observers noted effective fund leveraging and some projects indicate extensive results considering the level of investments.

Alternatives

Theoretically, an alternative approach to FEDOs would be to have the Community Futures Development Corporations (CFDCs) assist WD in meeting Section 41 requirements. There is no evidence from this evaluation showing that the CFDCs could effectively play the role of the FEDOs.

C . Recommendations

Overall, results show that the Action Plan was generally implemented as planned and has been successful overall. This evaluation also shows that there is a need for FEDOs, that they bring significant benefits to the OLMCs, and that WD should continue to support their activities as well as special projects coordinated by them (and WD).

The following recommendations are suggested in light of the evaluation findings:

For the next Action Plan, it is recommended that the roles and responsibilities of WD, the Coordinators and the FEDOs be clarified.
A communication strategy should be developed to ensure that the roles of the FEDOs are understood with regards to the OLA.
Considering take-up for the loans program, further research will need to be conducted to re-assess the needs of the Francophone businesses.
There is evidence that the coordinators experience a heavy workload. WD should consider either increasing their allotted time to this role or determining ways of helping them accomplish their tasks in a more productive manner.
Considering the visibility issue for the FEDOs, the next plan should incorporate specific actions to further promote the FEDOs and their services. These actions should also incorporate mechanisms to increase the visibility of the role of WD. Both FEDOs and WD should participate in this promotional effort.
The next Action Plan should be more outcomes focussed and incorporate a performance monitoring framework. This would include a clear description of the FEDOs and their mandate, a logic model of the Action Plan, clear outcomes and objectives statements, and a performance measurement strategy. A logic model such as the one appended to this report would be helpful in guiding WD to determine key outcomes, performance indicators, and targets.
Clear targets should be set for quantifiable indicators, such as the number of loans provided and jobs created.
The measurement strategy should also involve a follow-up on previous projects to assess their long-term impacts and opportunities for renewal.

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