The Value of Multilingual Parliaments: A Commonwealth Perspective

Multilingualism is a defining characteristic of many Commonwealth nations. As such, the practice of bilingual or multilingual governance, particularly within Parliaments, embodies democratic inclusivity, cultural preservation, and social equity. In this article, the author explores the value of bilingual Parliaments within the Commonwealth, drawing on case studies from Kenya, Canada, South Africa, Wales, and New Zealand. It examines both the benefits and challenges of institutionalizing linguistic diversity in legislative settings and offers recommendations rooted in innovation and participatory governance. *This article is a revised and expanded version of a Commonwealth Parliamentary Association blog post first published on February 21, 2025.

James Pinnell

James Pinnell is Deputy Head of Programmes (Multilateral Engagement) at the Commonwealth Parliamentary Association Headquarters Secretariat in London, United Kingdom.

Introduction

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Despite the presence of English as the lingua franca, the Commonwealth features an extraordinary linguistic diversity both between and within national boundaries. This diversity necessitates inclusive governance structures that reflect and represent this multiplicity of voices. Parliaments representing bilingual or multilingual jurisdictions—being central to democratic functioning—must respond by adopting and implementing appropriate practices and frameworks.

Linguistic plurality is not merely a cultural artifact or expression of heritage but a critical vector of identity and participation. Countries like South Africa, with 11 official languages, and Canada, with English and French constitutionally mandated, provide examples of the normative and institutional complexity of multilingual governance.

In legislative settings, the ability to engage with democratic processes in one’s mother tongue or preferred language is pivotal. It reinforces the legitimacy of governance and ensures that political discourse is not arbitrarily monopolized by dominant linguistic groups. As the UN General Assembly have affirmed through International Mother Language Day, linguistic rights are integral to broader human rights, development, and inclusion.1

Best Practices in Bilingual and Multilingual Parliaments

As already highlighted above, there are a number of jurisdictions across the Commonwealth with bilingual or multilingual societies. The following examples provide an insight into how some of the CPA’s Member Parliaments have sought to uphold and even promote multilingualism in their internal operations and procedures.

Kenya: Operationalizing Inclusivity Through Kiswahili

In a nation where Kiswahili functions as both a national and official language, the Parliament of Kenya has taken a landmark step by translating its Standing Orders into Kiswahili. This initiative aligns with Article 118 of the Kenyan Constitution, which emphasizes public participation. Developed in collaboration with the University of Nairobi, the bilingual Standing Orders are accessible via the Parliament’s website, underscoring a commitment to transparency and civic engagement. This aligns with CPA Benchmarks for Democratic Legislatures, which advocate accessibility and inclusivity in parliamentary procedures.2

The translation process was a collaborative effort involving a dedicated task force comprising Kiswahili experts from the University of Nairobi, Moi University, and Kenyatta University. Notable contributors included Iribe Mwangi, James Michira, and Vincent Magugu, among others. Their expertise ensured that the translated Standing Orders maintained the integrity and precision of parliamentary procedures while making them accessible to Kiswahili-speaking citizens.3

The translated Standing Orders, officially titled Kanuni za Kudumu za Bunge la Taifa, were unveiled by President Uhuru Kenyatta during the State of the Nation Address in November 2020. This milestone not only signified a commitment to linguistic inclusivity but also reinforced Kiswahili’s status as a language of official parliamentary discourse.4

Furthermore, the Parliament’s initiative is in line with Articles 7 and 120 of the Kenyan Constitution, which stipulates that the official languages of Parliament shall be Kiswahili, English, and Kenyan Sign Language, and that business may be conducted in any of these languages.5

This not only facilitates greater public participation by making parliamentary procedures more accessible but also serves as a model for other multilingual jurisdictions aiming to enhance inclusivity and democratic engagement through language policy reforms.

Canada: Institutional Bilingualism as a Legal and Cultural Framework

Canada’s commitment to bilingualism is deeply rooted in its legal and institutional frameworks. The Official Languages Act (OLA), first enacted in 1969 and substantially revised in 1988, establishes English and French as the official languages of Canada, ensuring their equality in all federal institutions, including Parliament.6

Under the OLA, Parliament guarantees the right to use either official language in debates and proceedings. Simultaneous interpretation services are provided to facilitate real-time understanding, and all official reports, such as the Hansard transcripts, are published in both English and French.7

The Translation Bureau, a federal institution, plays a pivotal role in supporting Parliament’s bilingual operations. It provides translation and interpretation services, ensuring that legislative documents and proceedings are accessible in both languages.8

To promote bilingual proficiency among public servants, the federal government offers language training programs. These programs aim to enhance the capacity of employees to work effectively in both official languages, reflecting the government’s commitment to a bilingual public service.

Furthermore, the OLA mandates that all federal legislation and official documents be enacted, printed, and published in both English and French, with both versions holding equal legal authority.9

Canada’s approach to institutional bilingualism serves as a model for accommodating linguistic diversity within a federal framework, balancing legal obligations with practical measures to ensure inclusivity and equal access to government services.

South Africa: Embedding Multilingualism in Participatory Democracy

South Africa’s Parliament exemplifies a robust commitment to multilingualism, reflecting the nation’s rich linguistic diversity. The Constitution of the Republic of South Africa recognizes 11 official languages: Afrikaans, English, isiNdebele, isiXhosa, isiZulu, Sepedi, Sesotho, Setswana, siSwati, Tshivenda, and Xitsonga.10 This constitutional mandate ensures that all official languages enjoy parity of esteem and are treated equitably.

To operationalize this commitment, Parliament adopted the Parliamentary Official Languages Policy in 2003, which stipulates that Members of Parliament (MPs) have the right to use any of the official languages during parliamentary proceedings. Consequently, simultaneous interpretation services are provided in all official languages during sessions of both the National Assembly and the National Council of Provinces, as well as in committee meetings. These services are also extended to visitors, media personnel, and other stakeholders attending parliamentary sessions.11

The establishment of a dedicated Language Services Unit within Parliament has been instrumental in facilitating multilingual communication. This unit comprises approximately 150 language practitioners responsible for interpretation, translation, editing, and transcription services. Their work ensures that parliamentary documents, including the Hansard, are accessible in all official languages, thereby promoting transparency and inclusivity.

Parliament’s efforts in promoting multilingualism have been recognized by the Pan South African Language Board (PanSALB), which honoured the institution for its role in providing simultaneous interpreting services across all official languages. This acknowledgment underscores Parliament’s dedication to fostering linguistic diversity and cultural preservation.12

Beyond the parliamentary precinct, the “Taking Parliament to the People” (TPTTP) initiative exemplifies SouthAfrica’s commitment to participatory democracy. This program involves Parliament convening sessions in various communities across the country, particularly in remote and underserved areas. During these sessions, interpretation services are provided in local languages to ensure that community members can engage effectively with parliamentary proceedings. The TPTTP initiative not only enhances public participation but also reinforces the importance of linguistic inclusivity in democratic processes.

Furthermore, the Parliament’s language policy aligns with the broader objectives of the Use of Official Languages Act, 2012, which mandates national departments and public entities to adopt language policies that promote the equitable use of official languages. This legislative framework reinforces the institutionalization of multilingualism within governmental operations.

Wales: Language Revitalization Through Governance

The National Assembly for Wales (Official Languages) Act 2012 specifically addresses the use of Welsh and English in Senedd proceedings and the functions of the Senedd Commission. This Act places a statutory duty on the Senedd to provide bilingual services, ensuring that both languages are used and promoted equally within its operations.13

To operationalize these legal mandates, the Senedd Commission implements an Official Languages Scheme, which  outlines  the  institution’s  commitment  to bilingualism. The Scheme focuses on five key themes: recruitment, language skills, language planning, Senedd proceedings, and developing a bilingual ethos within the organization. It sets standards for the provision of bilingual services, including the translation of documents, simultaneous interpretation during debates, and bilingual communication with the public.14

The Scheme is subject to regular review and is accompanied by annual reports that assess the Senedd’s performance in delivering bilingual services. These reports provide transparency and accountability, highlighting successes and identifying areas for improvement.15

The Senedd ensures that all official documents, including legislation, committee reports, and public communications, are available in both Welsh and English. During plenary sessions and committee meetings, simultaneous interpretation services are provided, allowing Members of the Senedd (MSs) to contribute in either language. This practice not only facilitates effective communication but also reinforces the equal status of both languages within parliamentary discourse.

Moreover, the Senedd’s digital platforms, including its website and social media channels, operate bilingually. Public inquiries and correspondence are responded to in the language of the original communication, demonstrating respect for individual language preferences and promoting inclusivity.

Recognizing the importance of language skills among its staff and MSs, the Senedd Commission provides language training and development opportunities. These initiatives aim to enhance the Welsh language proficiency of personnel, enabling them to perform their duties effectively in both languages and contribute to the institution’s bilingual ethos.

New Zealand: Advancing Indigenous Language Use in Parliament

The foundation for the use of te reo Māori in Parliament was established with the Māori Language Act 1987, which recognized te reo Māori as an official language of New Zealand. This legislative milestone was a direct response to the 1972 Māori Language Petition, where over 30,000 signatories called for the active recognition and teaching of the language across the nation.16

Members of Parliament (MPs) are entitled to speak in either English, New Zealand Sign Language, or te reo Māori during debates and proceedings. Simultaneous interpretation services are provided to facilitate understanding among all members, regardless of the language used. Official records, such as the Hansard transcripts, include speeches delivered in te reo Māori, preserving the language within the parliamentary archive.

The Parliamentary Counsel Office (PCO), known in Māori as Te Tari Tohutohu Pāremata, plays a pivotal role in this integration. The PCO is responsible for drafting government bills and legislative instruments, ensuring that legislation is accessible whilst preserving legal effectiveness of that legislation.17

The PCO has also committed to increase capacity in the use of te reo Māori in legislation. This bilingual drafting ensures that legislation is not only legally sound but also culturally resonant.18

Beyond legislative drafting, Parliament actively promotes the use of te reo Māori through various programs and events. For instance, during Māori Language Week, Parliament hosts activities and encourages the use of te reo Māori among MPs and staff, fostering a bilingual environment.

The integration of Māori cultural practices is also evident in parliamentary proceedings. Ceremonial openings and significant events often include karakia (prayers) and waiata (songs), acknowledging Māori traditions and embedding them within the fabric of parliamentary culture.

While significant progress has been made, challenges remain in fully realizing a bilingual parliamentary environment. These include ensuring the availability of skilled interpreters and translators, as well as providing adequate language training for MPs and staff. Continued investment in resources and education is essential to support the sustained use of te reo Māori in Parliament.

Benefits of Multilingual Parliamentary Practice

There are a variety of benefits to implementing programmes and policies which facilitate bilingual or multilingual parliamentary practices, including:

• Enhanced Democratic Participation: Multilingual Parliaments reduce linguistic barriers that often exclude marginalized groups from legislative engagement. Empirical studies show that linguisticinclusivity correlates with increased voter participation and trust in government institutions.
• Social Cohesion and National Unity: By validating the linguistic identities of all citizens, Parliaments can serve as agents of reconciliation and cohesion. South Africa’s multilingual Parliament is frequently cited as a stabilizing force in its post-apartheid transition.
• Cultural Preservation and Revitalization: Legislative recognition of minority and indigenous languages contributes to their revitalization. Wales and New Zealand provide notable examples of how institutional support can bolster cultural sustainability and intergenerational language transmission.

Challenges and Emerging Solutions

While aspirational, multilingual governance faces substantial constraints. Financial limitations often pose a primary challenge, as implementing timely and comprehensive translation and interpretation services can be prohibitively costly, particularly for legislatures with limited budgets. Securing sustainable funding and investment for language services remains a significant barrier.

Moreover, there is a chronic shortage of trained and certified translators and interpreters, particularly for minority or less widely spoken languages. Training and maintaining a pool of professional interpreters is resource-intensive and requires ongoing institutional commitment. Further exacerbating this challenge is the logistical complexity involved in scheduling parliamentary sessions to accommodate multilingual interactions, which can disrupt procedural efficiency and lead to prolonged decision-making processes.

Political resistance also presents a critical barrier. Concerns around perceived identity fragmentation, the potential for linguistic division, or fears of diluting national unity can stymie policy reforms promoting multilingual practices. Overcoming this resistance necessitates robust advocacy and sensitization campaigns aimed at demonstrating multilingualism’s broader societal benefits

Technological innovations, such as AI-powered translation and real-time captioning, present transformative opportunities. These tools can offer scalable, cost-effective alternatives for smaller legislatures. However, caution must be exercised to avoid algorithmic biases that marginalize non-dominant languages.

Strategic partnerships with linguistic experts, universities, and cultural commissions are essential to develop context-sensitive practices. Furthermore, inter- Parliamentary collaboration across the Commonwealth could foster knowledge exchange and standard-setting.

Conclusion

Bilingual and multilingual Parliaments represent not just linguistic accommodation, but democratic necessity. Within the Commonwealth, where language diversity is both a colonial legacy and a contemporary reality, inclusive legislative practices reinforce equity, deepen participation, and preserve heritage. Institutionalizing these practices requires political will, technological investment, and cultural sensitivity. As such, Parliaments must not only reflect but amplify the voices of all citizens—regardless of language.

Notes

1. United Nations General Assembly Resolution 56/262, 2002,  https://docs.un.org/en/A/RES/56/262  (last

accessed 18 May 2025)

1. 1. Commonwealth Parliamentary Association, “Recommended Benchmarks for Democratic Legislatures,” 2018. https://www.cpahq.org/media/ l0jjk2nh/recommended-benchmarks-for-democratic- legislatures-updated-2018-final-online-version-single. pdf
   2. University of Nairobi, “UoN dons in taskforce that developed the Kiswahili & Bi-Lingual versions of National Assembly Standing Orders.” https://uonbi.ac.ke/news/ uon-dons-taskforce-developed-kiswahili-bi-lingual- versions-national-assembly-standing-orders (last accessed on 18 May 2025)
   3. Tuko, “Kiswahili experts who translated Parliament Standing Orders to Swahili” https://www.tuko. co.ke/390651-kiswahili-experts-translated-parliament- standing-orders-kiswahili.html (last accessed on 18 May 2025)
   4. Constitution of Kenya (Revised Edition 2022), https://kenyalaw.org/kl/fileadmin/pdfdownloads/ TheConstitutionOfKenya.pdf
   5. Official Languages Act 1988, https://laws-lois.justice. gc.ca/PDF/O-3.01.pdf (last accessed at 18 May 2025)
   6. Report of the Standing Committee on Procedure and House Affairs, The Use of Indigenous Languages in Proceedings of the House of Commons and Committees https://www.ourcommons.ca/DocumentViewer/en/42- 1/PROC/report-66/page-69 (last accessed at 18 May 2025)
   7. The Hill Times, “Work, interrupted: new hires, remote interpretation set to boost committee capacity in new year” https://www.hilltimes.com/story/2022/12/13/work- interrupted-new-hires-remote-interpretation-set-to- boost-committee-capacity-in-new-year/358881/ (last accessed at 18 May 2025)
   8. Official Languages Act 1988, https://laws-lois.justice. gc.ca/PDF/O-3.01.pdf (last accessed at 18 May 2025)
   9. Constitution of the Republic of South Africa, https:// www.gov.za/documents/constitution/constitution- republic-south-africa-1996-04-feb-1997 (last accessed at 18 May 2025)

• H. Lesch & T. Ntuli, In search of quality interpreting services –The National Parliament of South Africa as a case study, Nordic Journal of African Studies – Vol 29 No 1 (2020)

1. “Pan South African Language Board honours Parliament for promoting multilingualism”, https://www.gov.za/ news/media-statements/pan-south-african-language-board- honours-parliament-promoting-multilingualism (last accessed at 18 May 2025)
2. National Assembly for Wales (Official Languages) Act 2012 https://www.legislation.gov.uk/anaw/2012/1/ contents (last accessed at 18 May 2025)
3. Welsh Parliament Senedd Commission, The Official Languages Scheme: Sixth Senedd, https://senedd.wales/ media/umofs3b3/gen-ld15324-e.pdf (last accessed at 18 May 2025)
4. Welsh Parliament Senedd Commission, Official Languages Scheme: Annual Report 2023-24, https:// senedd.wales/media/1ghamvll/official-languages- scheme-annual-report-2023-24.pdf (last accessed at 18 May 2025)
5. RNZ, “Te reo Māori thrives as petition anniversary marked” https://www.rnz.co.nz/national/programmes/ the-house/audio/2018858853/te-reo-maori-thrives-as- petition-anniversary-marked (last accessed at 18 May 2025)
6. New Zealand Law Society, “PCO looks to write legislation in Plain Language” https://www.lawsociety.org.nz/ news/newsroom/pco-looks-to-write-legislation-in- plain-language/ (last accessed at 18 May 2025)
7. Ibid