The wording selected by Parliament when these part VII provisions were codified in 2005 included “positive measures” and the duty of federal institutions to ensure positive measures are taken for the implementation of the government commitments under section 41 of the act. I agree this is very broad wording.
One only has to read Justice Gascon's Federal Court ruling in Fédération des francophones de la Colombie-Britannique v. Canada (Employment and Social Development). His main finding was that the term is too broad and there isn't sufficient substance for a decision-maker to work with. One may disagree with Justice Gascon on that point, but the overall gist of the ruling was that part VII gives the Governor in Council the power to make regulations precisely to clarify and substantiate these terms. To date, this power that has never been exercised. That would then be a way to do just that.
Another mechanism would be to clarify the wording yourselves, when you work on the draft of a future official languages act. You could specify certain positive measures, give examples, and on that basis, a decision-maker could rule on whether a federal institution has taken positive measures, as is currently its duty to do.