EUROPA

SUMMARY

The European Union is home to 450 million Europeans from diverse ethnic, cultural and linguistic backgrounds and it is now important than ever that citizens have the skills necessary to understand and communicate with their neighbours.

At the moment, language skills are unevenly spread across countries and social groups. The range of foreign languages spoken by Europeans is narrow: learning one lingua franca alone is not enough. Every European citizen should have meaningful communicative competence in at least two other languages in addition to his or her mother tongue. This is an ambitious goal, but the progress already made by several Member States shows that it is perfectly attainable.

Role of the European Union and the Member States

In the European Union, each Member State assumes full responsibility for organising its educational systems as well as the content of the programmes, on the basis of the "principle of subsidiarity". In accordance with Articles 149 and 150 of the Treaty, the role of the Community is to contribute to the development of quality of education by encouraging cooperation between Member States and, if necessary, by supporting and supplementing their action, notably by developing the European dimension in education, encouraging mobility and promoting European cooperation between educational establishments.

It is the authorities in Member States who bear the primary responsibility for implementing the new push for language learning. In their work on concrete objectives for education and training systems, Member States have agreed common objectives towards which they work by setting indicators and benchmarks, sharing good practice and undertaking peer reviews.

The European Union's role in this field is not to replace action by Member States, but to support and supplement it. However, the European Union (EU) has put in place numerous specific actions for the general public designed to promote language education and learning in cooperative Community programmes in the following areas, viz.:

• education under the SOCRATES programme;
• vocational training under the LEONARDO DA VINCI programme;
• the audiovisual sector under the MEDIA Plus programme, which supports cinema distribution, notably as regards dubbing and subtitling costs.

The European Union has also put in place wider initiatives, viz.:

• the European label for innovative initiatives in the field of language training and learning;
• the European Bureau for Lesser Used Languages (EBLUL) and the MERCATOR information network for the promotion and preservation of regional and minority languages and cultures.

The Commission also encourages Member States to make use of other European programmes, the European Social Fund and the European Investment Bank to fund developments in language learning.

Objectives and actions

The present action plan identified four broad areas in which action should be taken: extending the benefits of life-long language learning to all citizens, improving language teaching, creating a more language-friendly environment and developing a framework for progress.

Language learning is a lifelong activity, for which this action plan identifies the following specific objectives:

• learning of a mother tongue plus two other languages;
• language learning in secondary education and training;
• language learning in higher education;
• language learning among adults;
• encouragement for language learning by learners with special needs;
• development of a wide range of languages.

Better language teaching also means having a more receptive school structure. In this context, this action plan identifies the following specific objectives:

• a language-friendly school;
• wider dissemination of tools developed for teaching and learning languages;
• better training for language teachers;
• increasing the supply of language teachers;
• training teachers of other subjects;
• testing language skills.

In order to build a language-friendly environment, this action plan identifies the following specific objectives:

• establishing an inclusive approach to linguistic diversity;
• building language-friendly communities;
• improving supply and take-up of language learning.

With the aim of developing a framework for progress vis-à-vis local, regional, national and European political authorities, this action plan proposes targeted actions.

For each of these three main fields of action, the action plan defines specific objectives and one-off measures, following a precise short-term timetable (between 2004 and 2006). These measures are aimed at local, regional and national authorities.

Early learning of a mother tongue plus two other languages

The advantages of the early learning of languages only accrue where teachers are trained specifically to teach languages to very young children, where class sizes are small enough for language learning to be effective, where appropriate training materials are available, and where enough curriculum time is devoted to languages. Initiatives to make language learning available to an ever-younger group of pupils must be supported by appropriate resources, including resources for teacher training. In this context, the action plan proposes:

• the funding, scheduled for 2005, of a study on the main pedagogical principles underlying the teaching of foreign languages and cultures to very young learners;
• the dissemination, in 2005, of information about the benefits of early language learning;
• the organisation, in 2006, of a European conference for education decision-makers;
• the funding, under the call for proposals for SOCRATES 2004, of a series of transnational projects to develop materials for teaching (action Lingua 2);
• support from the Commission and national agencies for language assistantships, particularly at primary level (throughout 2005 and 2006).

Language learning in secondary education and training

Member States agree that pupils should master at least two foreign languages, with the emphasis on effective communicative ability. The aim is to acquire appropriate levels of skill in reading, listening, writing and speaking in two foreign languages, together with intercultural competencies and the ability to learn languages whether with a teacher or alone. In this context, the action plan proposes:

• the funding of language projects between schools (SOCRATES programme, action Comenius) enabling pupils in classes in different countries to participate in a joint project. The funding scheduled for these projects in 2005 and 2006 will amount to 25%;
• the funding, in 2006, of a study of language and intercultural skills pertaining to each stage of learning or training;
• the encouragement by the Commission and national agencies of more intensive use of available resources under the SOCRATES programme, Comenius action 2 (throughout 2005).

Promoting the teaching of a subject through a foreign language (EMILE)

Teaching a subject through a foreign language (EMILE) would enable pupils to use their new language skills directly, rather than learn them now for use later. In this context, the action plan proposes:

• funding a series of transnational projects for the development and dissemination of new, specific methodologies for teaching subjects through languages other than lingua francas (SOCRATES programme, action Lingua 2). The Commission proposes that the general Socrates Call for Proposals in 2004 be amended accordingly;
• increasing support to schools wishing to introduce a Content and Language Integrated Learning approach (SOCRATES, Comenius action 1). In particular, exchanges of teachers between partner schools will be encouraged;
• organising a European conference in 2005 for decision-takers and inspectors to launch a major new study on the benefits of Content and Language Integrated Learning;
• dissemination by the Eurydice network of information on the availability of Content and Language Integrated Learning in European education and training systems (scheduled for 2005).

Language learning in higher education

Higher education institutions play a key role in promoting societal and individual multilingualism. In order to prevent recent trends to provide teaching in English having unforeseen consequences on the vitality of the national language, university language policies should include explicit actions to promote the national or regional language. All students should study abroad, preferably in a foreign language, for at least one term, and should gain an accepted language qualification as part of their degree course. Under the SOCRATES programme, this action plan envisages the funding of specialised courses in the less widely used and less taught languages. The aim is to encourage more Erasmus students to take advantage of these courses, with a target of 10% of Erasmus students attending these courses by 2006.

Adult language learning

Every adult should be encouraged to carry on learning foreign languages, and facilities should be made readily available to make this possible. Workers should have the opportunity to improve the language skills relevant to their working life.
The Commission intends to create a web portal (invitation to tender scheduled for 2005) on the Europa server giving easy access to information for the general public and language professionals. The portal will be widely marketed.

Language Learners with special needs

Good practice in teaching languages to learners with special needs can be further developed and new methods and approaches need to be developed for the teaching of foreign languages to such learners. During 2006, the Commission intends to collect and disseminate information about good practice in the teaching of foreign languages to learners with special needs, with particular reference to the organisation of curricula and teaching systems.

Range of languages

Taken as a whole, the range on offer should include the "smaller" European languages as well as all the "larger" ones, regional, minority and migrant languages as well as those with national status, and the languages of our major trading partners throughout the world. Member States should provide adequate information to parents about the choice of their child's first foreign language, and the flexibility of school curricula to permit the teaching of a wider range of languages.

The language-friendly school

It is important that schools and training institutions adopt a holistic approach to the teaching of language, which makes appropriate connections between the teaching of 'mother tongue', 'foreign' languages, the language of instruction, and the languages of migrant communities. During 2005 and 2006, the Commission and National Agencies will work to increase take-up of school development projects (Socrates, Comenius action 1) whose objective is to develop and implement holistic school language policies in primary, secondary or vocational schools.

The languages classroom

During 2005 and 2006, the Commission and National Agencies will work to increase the use by teachers, trainers, and learners of the language products developed under the Socrates and Leonardo da Vinci programmes. The e-twinning action of the new E-learning programme will make it possible for all European schools to build pedagogical partnerships with a school elsewhere in Europe, fostering language learning and intercultural dialogue, and promoting awareness of the multilingual and multicultural European model of society.

Language teacher training

There is currently a significant disparity in modes of training, and not all teachers have lived or studied in the country whose language they teach. During 2005 and 2006, the Commission will undertake targeted campaigns to disseminate information about the Socrates and Leonardo da Vinci programmes' mobility schemes for language teachers and their trainers. The proportion of Socrates Comenius 2 funding allocated to such projects will be raised to 25% of the total Socrates Comenius 2 budget during 2004. The Commission intends to fund a study (invitation to tender scheduled for 2004) to identify the core pedagogical and linguistic skills necessary for today's language teachers, and propose a framework for their assessment.

Supply of language teachers

Some Member States face shortages of adequately-qualified language teachers. More can be done to exchange teachers between Member States; such teachers may work as teachers of their mother tongue, teachers of another language or as teachers of another subject through their mother tongue. Following its recent study on obstacles to teacher mobility in the Union (invitation to tender test of language skills 2004), the Commission will fund a more detailed analysis specifically of the obstacles to the mobility of language teachers, including a survey of their own perceptions and attitudes and recommendations for Member States. In 2006, a symposium on the supply of qualified language teachers in Europe will be organised.

Training teachers of other subjects

Most pupils and trainees could study at least some of their curriculum through the medium of a foreign language. Many more members of the teaching profession should in future be able to teach their subject(s) through at least one foreign language; to this end, trainee teachers should study language(s) alongside their area of specialisation and undertake a part of their teaching studies abroad.

Testing language skills

It is also important, however, to tackle the information requirements of language learners themselves, their employers, their teachers and education and training institutions. In this context, the action plan proposes:

• designing a test of language skills (invitation to tender scheduled for 2003/4) in order to gather data for the new European indicator of language competence (scheduled for 2005 and 2006);
• including this test, where appropriate, in the single framework for the transparency of competencies and qualifications (Europass), which should enter into force in 2005;
• undertaking an inventory (invitation to tender scheduled for 2004) of language certification systems in Europe;
• organising a working conference (scheduled for 2005) to devise mechanisms to support the effective and transparent use of the scales of the Common European Framework in language testing and certification.

An inclusive approach to linguistic diversity

Respect for the diversity of the Union's languages is a founding principle of the European Union. The mainstream European education, training and culture programmes are already accessible to speakers of all languages, whether 'official' languages or regional languages, minority languages, languages spoken by migrant communities, or sign languages. The action plan envisages:

• organising a conference (scheduled for 2005) on issues affecting 'regional' and 'minority' languages in education systems;
• a new publication (scheduled for 2004) of the Euromosaic report on regional and minority languages to take account of the enlargement of the European Union;
• aid for mainstream programmes for the Member States which give special attention to measures to assist language communities whose number of native speakers is in decline from generation to generation.

In the longer term, all relevant Community programmes and the Structural Funds should include more support for linguistic diversity, inter alia for regional and minority languages, if specific action is appropriate.

Building language-friendly communities

Every community in Europe can become more language-friendly by making better use of opportunities to hear and see other languages and cultures, thereby helping to improve language awareness and learning. The 2004, 2005 and 2006 calls for proposals for town-twinning projects will be amended so that multilingualism in the European Union is an eligible topic for meetings of citizens and for thematic conferences. The Commission will also launch an open study to analyse the potential for greater use of sub-titles in film and television programmes to promote language learning and to examine ways and means of encouraging greater use of sub-titled audio-visual material for language learning purposes.

Improving supply and take-up of language learning

It is essential to improve the take-up of language learning opportunities by continuous activities to raise awareness of the benefits of language learning, and by bringing language resources closer to the people who need them. The Commission will propose that the general Socrates Call for Proposals in 2004 be amended so that the Grundtvig action attaches a higher priority to projects in the field of foreign language teaching and learning, and in particular the languages of migrant communities. During 2005 and 2006, the European Language Label will be re-focused by introducing in each country or region an annual prize, by using targeted annual European priorities and by organising annual publicity campaigns. In 2005, the Commission will publish a five-yearly monitoring report on the state of diversity in the supply of language teaching in the European Union.

A framework for progress

The promotion of language learning and linguistic diversity involves a real investment and commitment by public authorities at local, regional, and national as well as European level. The action plan also proposes the following actions:

• the establishment, in 2004, of a permanent high-level group of representatives of Member States, social partners, and the world of education, training and culture. It will assist in the monitoring of this action plan by stimulating public debate with stakeholders about language learning and linguistic diversity;
• the funding of a detailed study (invitation to tender scheduled for 2003) of the requirements for language skills in the European Union;
• the funding of studies (invitation to tender scheduled for 2004) concerning the costs of non-multilingualism, and the effects on the European economy of business lost due to a lack of foreign language skills;
• the funding of research (scheduled for 2006) into such issues as the links between multilingualism and the multicultural society, European identity, and the knowledge-based society, the basis of language learning, and implications for language teaching methodologies;
• the European Eurydice network will publish a volume containing a detailed analytical overview on foreign language teaching in schools in Europe. This will appear at the end of 2004 and be updated every two years;
• the publication by the Commission of information on the extent to which its programmes in the field of Education, Training, Youth, Media and Culture promote language learning and linguistic diversity (scheduled for 2005 onwards);
• the establishment during 2004 and 2005 of a European network of inspectors of foreign language education and training (and similar policy-makers).

Overall budget and monitoring of action plan

The overall budget for 2004-2006 is 8 200 million euro, intended for the SOCRATES, LEONARDO da VINCI and MEDIAPlus programmes.

In 2007, Member States will present to the Commission a series of reports on the extent to which they have made use of the additional opportunities for supporting languages within the Socrates and Leonardo da Vinci programmes. The most successful practices they have identified in this period will be examined by the Commission and will be the subject of a communication to the Parliament and the Council which will propose amendments or additional actions as necessary.

Background

The European Year of Languages (in 2001) highlighted the many ways of promoting language learning and linguistic diversity. On 14 February 2002, the Education Council invited Member States to take concrete steps to promote linguistic diversity and language learning, and invited the Commission to draw up proposals in these fields. This action plan is the European Commission's response to that request. It is the result of a wide public consultation involving the other European institutions, relevant national ministries, a wide range of organisations representing civil society, and the general public.