Language is Infrastructure: How Municipalities Can Embrace Indigenous and Multilingual Communication for Inclusive Governance

Originally published in Municipal World, February 2026

People who require essential or equitable services need the ability to communicate seamlessly. Language is not just how we speak, but how we access health care, participate in city planning, and connect with our neighbours. In increasingly diverse communities across Canada, municipalities have a responsibility to make their communications accessible and inclusive.

There are many ways for municipalities to achieve this. Embedding multilingual and Indigenous languages starts with understanding the role these languages play in communities. This means redefining pre-existing infrastructures. Learning from real-world examples can help apply best practices, ultimately aligning inclusive communication with broader municipal goals.

Rethinking Infrastructure to Include Language

Language access infrastructure includes the systems, partnerships, and resources that allow municipalities to communicate clearly across all communities, whether through emergency alerts, permits, or public engagement.

Language barriers can limit access to communities and create gaps in public trust. Some services municipalities offer that can be hindered include:

• Access to Information – Residents must be able to access and clearly understand public health alerts, building permits, transit schedules, and recreation programs.
• Democratic Participation – Communities must be permitted to participate, understand, and contribute in public consultations, surveys, and voting processes.
• Reconciliation – Municipalities play a role in reconciliation and need to support the revitalization of languages that have shaped the country for generations.

According to Statistics Canada, in 2021, more than 9.5 million people were living in multilingual households, with 4.6 million speaking a language besides English or French. Among these languages, there are 72 Indigenous languages

Meanwhile, the Truth and Reconciliation Commission of Canada was established in 2008 to provide residential school survivors with an opportunity to share their stories and experiences, and to find a path toward healing and reconciliation for the harm that was done.

The impact of the Truth and Reconciliation Commission resulted in 94 Calls to Action published in 2015, which included recognizing Aboriginal language rights as fundamental human rights. This led to the Indigenous Languages Act that received Royal Assent in 2019 to support the reclamation, revitalization, and maintaining of Indigenous languages in Canada.

Languages are not mere add-ons or legal checkboxes – they are the living foundation of cultures, the cornerstone of health and wellbeing, and the driving force behind thriving economic and social communities.

The Role of Municipalities in Language Access

Municipal governments play a unique role in advancing language access. Unlike federal or provincial policies, municipalities are rooted in place. They are where diverse communities live, work, and connect every day—and where language access is most immediately felt.

For newcomer and immigrant communities, multilingual services help people navigate health care, housing, schooling, and labor and civic participation. For Indigenous communities, language access is not just about communication—it is about reconciliation, visibility, and cultural recognition in the places where they have lived for generations.

Geography plays a big part in this. Many Indigenous and cultural language communities are concentrated in specific municipalities:

• Eskasoni, Nova Scotia, is the largest Mi’kmaq-speaking community in the world, and municipal collaboration is critical for ensuring Mi’kmaq visibility and service access.
• The Ottawa region, in Ontario, is the traditional and unceded territory of the Anishinaabeg Algonquin, but also the home of largest Inuit population outside of Nunavut, making Inuktitut and Inuit-specific services vital to city planning and service delivery.
• In Richmond, British Columbia, over half the population speaks a first language other than English, with Cantonese, Mandarin, and Punjabi holding special local importance.
• In Winnipeg, Manitoba, Cree, Ojibwe, Tagalog, Punjabi, and Ukrainian communities shape the city’s linguistic landscape.

This local concentration of languages means municipalities are often the first responders to language needs. Municipalities that prioritize language access are not only improving daily services—they are building trust, strengthening belonging, and supporting reconciliation.

Municipal Use Cases

Municipalities that prioritize language access are not only improving daily services but also building trust, strengthening belonging, and supporting Reconciliation.

Health and safety communications

While health care is provincially managed, municipalities play a key role in supporting residents through community partnerships.

During the pandemic, organizations like Tungasuvvingat Inuit (TI) and Inuuqatigiit worked with the City of Ottawa to share vital health information with Inuit residents. These examples show that, even with limited in-house translation resources, municipalities can ensure inclusive communication by collaborating with trusted, community-based organizations — sometimes with funding available through those very partnerships.

Environmental planning

Municipal governments in Canada are uniquely positioned to embed language inclusion right where it matters—at the heart of community life. Unlike higher levels of government, municipalities are closest to residents—and in many cases, deeply tied to Indigenous communities with rich linguistic heritage.

Organizations like the Nunavut Municipal Training Organization have supported local governments by translating training materials and assessments into Inuktut, ensuring that both municipal workers and residents can engage meaningfully in projects that affect their lands.

Best Practices for Municipal Language Planning

Working with experienced language service providers alongside these networks can help municipalities extend their reach and provide clear, culturally safe information when needed most.

The following is a list of best practices to consider:

• Partner with cultural initiatives – Collaborate with projects like FirstVoices, which offers platforms, keyboards, and digital tools for Indigenous communities to document and share language resources securely and on their terms.
  
• Use public spaces for language visibility – Consider municipal signage, greetings, and names in Indigenous languages to affirm Indigenous presence and celebrate Indigenous heritage.
• Align with municipal inclusion strategies – Ensure that language programming is culturally rooted, accessible, and supports service delivery, inspired by Ontario’s Urban Indigenous Action Plan for inclusive planning and delivery of services.
  

Making Accessibility Inclusive Through Language

Inclusive accessibility goes beyond ramps and signage — it’s also about ensuring that every resident can understand and engage with municipal services. Under the Accessibility for Ontarians with Disabilities Act (AODA), municipalities are encouraged to adopt plain language, visual support, and alternative formats. Adding a multilingual lens to this work ensures no one is left behind.

That’s where service providers that are experienced with inclusive delivery can help:

• delivering information in plain language so policies, forms, and notices are clear and easy to understand.
• providing multilingual translations that reflect the diversity of local communities, including Indigenous languages.
• creating accessible formats such as large-print, audio, captions, and easy-to-read versions.
• collaborating with cultural and community partners to ensure messaging is inclusive, respectful, and effective.

By embedding these practices, municipalities can move beyond minimum accessibility standards toward true identity.

Language is a bridge that strengthens trust, supports Reconciliation, and ensures every resident can participate fully in community life. With the right partners, municipalities can meet accessibility and inclusivity standards, making services more equitable, inclusive, and accessible to all residents.

by Olga Haznaci