That's definitely what it takes.
It always depends on the example that's set. I can't disagree with what you're telling me. Currently, however, we often use the statistics included in the Official Languages Act. For example, it provides that such and such a department in a particular region must have a minimum of so many bilingual persons. We do our best to work within that framework.
Here's an example from my former department—I'm going to reveal where I used to work—Correctional Service Canada. I was always surprised to see that we couldn't find a plumber or an electrician to work at the Port-Cartier Institution, near Sept-Îles. Why couldn't we find anyone?
We needed bilingual employees for staffing purposes and to meet the criteria of the Official Languages Act. No one in that line of work near Sept-Îles is bilingual. Consequently, senior management must set an example in order to improve bilingualism at all levels.