I can answer that, and I'm sure Mr. Poliquin can chime in too.
In part, progress is what's measurable. For example, is French being used more? I think that's one of the objectives. Has the francophone population grown? Has French become a more common public language? These things can be quantified, at least in part. There may be a qualitative element as well, but it's largely quantitative. That's where performance indicators or some kind of indicator will be involved. As to where it should be in the regulations or whether it should be better defined, I'm not sure, but, in my opinion, performance indicators will largely define whether or not there has been progress.
I don't know if I've answered your question.