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SPICE BRIEFING ON FOREIGN LANGUAGE LEARNING IN THE EUROPEAN UNION

Background

On 20 September 2012, the European and External Relations Committee requested information from SPICe on foreign language learning across the European Union to help inform their inquiry.

This paper provides details of how language teaching is currently conducted in Scottish primary schools with particular reference to the Curriculum for Excellence. It then looks at the Scottish Government’s proposal to increase language learning in Scottish primary schools with the 1+2 approach. Finally, using research and analysis published by the European Commission this paper examines how foreign languages are taught in primary schools across the European Union. Initially the paper sets out why learning foreign languages is important to both pupils and a country’s future economic development.

Key Points

Widespread use and understanding of foreign languages is important to a country’s economic development

Curriculum for Excellence recognises the importance of teaching foreign languages

The Scottish Government has endorsed the 1+2 approach for language learning which would lead to every child learning two languages in addition to their mother tongue

The Scottish Languages Working Group has recommended that children begin learning a foreign language in Primary 1and a second foreign language by Primary 5 at the latest.

The Scottish Languages Working Group does not recommend a fixed number of hours for learning foreign languages in primary schools but does recommend that there should be regular planned exposure to the learning of a first and second foreign language

The Scottish Government has welcomed the Scottish Languages Working Group report and its 35 recommendations either in full or in part

In most European Union countries foreign language teaching is compulsory from an early stage in primary school

In Spain, Italy, Luxembourg, Austria, Lithuania and Portugal the first foreign language as a compulsory subject is taught at age 6, in France it is taught at age 7 and in Germany at age 8

Many European countries also teach a second foreign language as a compulsory subject

In 14 countries or regions within countries in the European Union, all students must learn English and, in most cases, it is the first language they have to learn.

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In about two-thirds of European countries, central education authorities issue recommendations on taught time for the grades in which foreign language teaching is provided during full-time compulsory education

The importance of learning foreign languages

It has been suggested that learning and understanding foreign languages is important to a country’s economic development.

Speaking during a House of Lords debate on modern languages in December 2009, Baroness Coussins said:

“that unless the decline in modern language learning is reversed, anglophone Britons will become one of the most monolingual peoples in the world, with severe consequences for our economy, for business competitiveness, for international reputation and mobility and for community cohesion at home.”

“…CBI surveys have highlighted the frustration of UK employers. Sixty per cent are dissatisfied with the foreign language skills of school leavers, and I should perhaps say at this point that there is plenty of evidence to show that learning a foreign language greatly reinforces literacy in English too. Over a third of UK businesses want people specifically for their language skills, but increasingly are forced to recruit overseas to meet their needs. Seventy-two per cent of UK international trade is with non-English-speaking countries, but only one in 10 of us can speak a foreign language and only 30 per cent of us say we can even understand a conversation in another language. Three times more French, German and Spanish students go on Erasmus-funded placements abroad as part of their degree than British students, giving themselves a competitive advantage in a global labour market.”1

The Scottish National Centre for Languages Modern Languages Excellence Report reinforces this point in the Scottish context. It states:

“Scotland defines its overall purpose as the creation of a “more successful country, with opportunities for all to flourish through increasing sustainable economic growth”. The link between Modern Languages and this vision for Scotland is obvious; as a nation we must recognise and promote the numerous benefits that language learning can bring to our learners, benefits which in turn radiate out to our schools, into positive destinations beyond school, and ultimately impacting and benefiting society at large.”2

In addition, research commissioned by the Scottish Government Languages Working Group suggests that an inability to engage with foreign business in its own language is a barrier to trade development and can be measured as a cost equivalent to over £500 million to the Scottish economy each year3.

1 House of Lords Hansard 3 December 2009

http://www.publications.parliament.uk/pa/ld200910/ldhansrd/text/91203-0002.htm 2 Scottish National Centre for Languages Modern Languages Excellence Report

http://www.scotland.gov.uk/Resource/Doc/91982/0114747.pdf 3 Language Learning in Scotland – A 1+2 Approach

http://www.scotland.gov.uk/Resource/0039/00393435.pdf

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The Modern Languages Excellence Report categorises the benefits of foreign language learning under four themes, personal, cognitive, economic and societal. The report highlights a study commissioned by the European Commission which highlights the cognitive benefits of foreign language learning as follows:

Enhanced mental flexibility

Enhanced problem-solving ability (including organisational skills)

Expanded metalinguistic ability (intercultural skills)

Enhanced learning capacity

Enhanced interpersonal ability (team-working/communication and presentation skills/perception of the perspective of others)

Reduced age-related mental diminishment (dementia, Alzheimer’s)4

The Modern Languages Excellence Report also attempts to address three misconceptions which may affect attitudes to language learning. These are:

Everybody speaks English

Learning languages is particularly difficult

You have to be fluent for languages to be of any use

According to the report, in reality, only 6% of the world’s population speak English as a first language and in addition 75% of the world population don’t speak any English.

Foreign Language Teaching in Scottish Primary Schools

The importance of foreign languages is recognised in the Curriculum for Excellence. Learning and Teaching Scotland’s “Modern Languages Principles and Practice Paper states:

“Learning other languages enables children and young people to make connections with different people and their cultures and to play a fuller part as global citizens.

Learning through the languages area of the curriculum enables children and young people to:

develop their ability to communicate their thoughts and feelings and respond to those of other people

develop the high level of skills in listening, talking, reading and writing which are essential for learning, work and life

use different media effectively for learning and communication

4 Study on the Contribution of Multilingualism to Creativity (2009)

http://ec.europa.eu/languages/documents/sum_en.pdf

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develop a secure understanding of how language works, and use language well to communicate ideas and information in English and other languages

exercise their intellectual curiosity by questioning and developing their understanding, and use creative and critical thinking to synthesise ideas and arguments

enhance their enjoyment and their understanding of their own and other cultures through literature and other forms of language

develop competence in different languages so that they can understand and communicate including, for some, in work settings.”5

Modern Languages Principles and Practice outlines the current framework for teaching Modern Languages in Scotland highlighting the importance of listening and talking, reading and writing. The paper provides some questions and answers on learning and teaching approaches which may be useful for modern languages. This has been reproduced at Annex A.

Highlights to note from Principles and Practice are that Primary 6 is currently the most common point at which pupils begin to learn a modern language although some children do begin earlier, including in pre-school. In terms of level of achievement it states that:

“We are certainly raising the bar to the extent that, without placing a ‘ceiling’ on higher levels of achievement, we expect the majority of young people to achieve by the end of S3 a level of performance in each language skill which approximates to the level of performance associated with SCQF level 4. The achievement of fourth level outcomes represents a substantial and useful level of competence closely linked to Basic User level on the Common European Framework of Reference for Languages (CEFR).”6

Details of the level of performance associated with SCQF level 4 is provided in “Curriculum for Excellence: Modern Languages, Experiences and Outcomes”7

A 1+2 Approach

The Scottish Government's key commitment to language learning is to "introduce a norm for language learning based on the European Union 1 + 2 model - that is we will create the conditions in which every child will learn two languages in addition to their own mother tongue. This will be rolled out over two Parliaments and will create a new model of language acquisition in Scotland"8.

5 Modern Languages Principles and Practice

http://www.educationscotland.gov.uk/learningteachingandassessment/curriculumareas/languages/modernlanguages/principlesandpractice/index.asp 6 Ibid.

7 Curriculum for Excellence: Modern Languages, Experiences and Outcomes

http://www.educationscotland.gov.uk/learningteachingandassessment/curriculumareas/languages/modernlanguages/eandos/index.asp 8 http://www.scotland.gov.uk/Topics/Education/Schools/curriculum/ACE/LanguageLearning

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In May 2012 the Scottish Government’s Languages Working Group which had been established in September 2011 issued its final report9.

The Working Group included representation from head teachers, teachers, modern language practitioners, Education Scotland, SCILT (Scotland’s National Centre for Languages), ADES, universities, STEC (Scottish Teachers Education Committee), GTCS, National Parent Forum Scotland and business. The Group’s remit was to consider:

the implications for staff at all levels of language learning and teaching within the framework of Curriculum for Excellence;

options for engaging with employers and parents and learners to make the case for language learning;

the key issues for local authorities, schools, CPD providers, colleges and universities with respect to teacher supply, teacher support and education and the professional development of staff;

strategic advice and direction to support implementation of the Government’s policy in relation to the development of languages in schools.

The Working Group’s report begins by assessing the current situation with regard to uptake in modern languages. It suggested that whilst there is “considerable innovative practice in the teaching of modern languages at all levels in Scotland’s schools” it states that:

“inspection evidence indicates that practice in delivering modern languages varies in quality. In addition, we have seen a long-term overall decline in the numbers of pupils achieving National Qualifications in languages. In modern European languages the uptake across all languages is declining with the exception of Spanish. In French, traditionally the first additional language for the majority of pupils, there has been a steady decline. In German, the decline has been rapid. Italian, from a low base, is in decline. In Gaelic, the number of presentations for qualifications is relatively stable, although at low base.

In the primary sector, despite innovative practice in some schools in beginning language learning early, children are not expected to experience modern language learning until P6. Some primary children do not experience language learning at all, due to staffing or other difficulties. There can be issues at the point of transition from primary to secondary school in terms of continuity of language learning. Some schools still offer learners subject choices in the early part of the secondary school, with the option to give up language learning before the end of their broad general education. Furthermore, a number of schools across the country experience disappointingly low uptake in languages to certificate level with a consequent decline in the number of pupils sitting SQA examinations in modern languages.”10

A key conclusion from the Working Groups report is that:

9 Language Learning in Scotland – A 1+2 Approach http://www.scotland.gov.uk/Resource/0039/00393435.pdf

10 Ibid

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“Introducing two additional languages is an ambitious goal but one which, given the right approach and the right resources, the Working Group believes is achievable. To deliver the framework, the Report recommends earlier access to language learning for children at the primary stage, enhanced partnership working between primary and secondary schools, closer collaboration across all sectors of education, more extensive and more effective use of technology and regular access to native and fluent speakers to stimulate young people’s interest in language learning and other cultures.”11

In total the Working Group came up with 35 recommendations. From the points of view of foreign language teaching in primary schools, the key recommendations were:

Recommendation 1: In line with practice across many EU member states where teaching of at least one foreign language is compulsory from between 6 and 9 years of age, schools in Scotland should offer children access to an additional language from Primary 1.

Recommendation 2: Local Authorities and schools should work towards provision of the 1+2 language learning strategy but that it should be left to schools to determine which languages to offer. When considering which languages to teach “consideration should be given to teaching modern European languages, languages of the strong economies of the future, Gaelic and community languages of pupils in Schools”.

Recommendation 3: The Scottish Government should fund a number of pilot projects in 2012-13 on introducing access to language learning from Primary 1 and that it should be introduced across all schools on a phased basis from 2013-14.

Recommendation 4: A second additional language should be introduced for pupils at a later stage in primary school. Whilst the timing of the introduction of a second language would be a matter for schools and Local Authorities to determine, it should be no later than Primary 5.

Recommendation 6: Whilst the Working Group does not recommend a fixed number of hours for learning foreign languages in primary schools, it does recommend that there should be regular planned exposure to the learning of a first and second foreign language.

Recommendation 7: The Working Group recognises that the introduction of a foreign language from Primary 1 and a second language from Primary 5 at the latest will present “significant organisational, resource and staffing issues”. As a result the Working Group recommends that local authorities work with their schools to address the organisational and curricular issues arising from earlier access to foreign language teaching.

Recommendation 8: The Working Group suggested that a key component in ensuring teaching of foreign languages is successful will be in the transition from primary to secondary school. The report states:

“Research conducted by Scotland’s National Centre for Languages indicates that up to one third of primary schools who responded have no regular language links with secondary schools in their areas. Associated primary schools which have introduced an element of modern language teaching have not necessarily taught the same

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Ibid

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languages and to the same level by the time pupils arrive at secondary school. There are issues around teacher confidence and sometimes competence in delivering a modern language in the primary school. The result is that many secondary schools have felt it necessary to make a fresh start to teaching a modern language in S1. In future, the introduction of earlier and additional language learning in primary will require secondary schools to make arrangements which give greater consideration to building on pupils’ prior learning.”

As a result of this issue, the Working Group recommended that primary and secondary schools work effectively together to ensure articulation between the sectors in terms of content, skills and approaches to learning and to enable effective transition, progression and continuity between P7 and S1, particularly for the learning of the first foreign language.

Recommendation 13: The Working Group expressed concern that equality of provision might be affected in the roll out of increased foreign language learning. As a result it recommended that local authorities ensure their languages strategy take account of social deprivation challenges and of the different issues faced in urban and rural areas.

Recommendation 20: The Working Group recognises that an increased requirement to teach foreign languages at primary level will place a greater requirement on primary teachers in terms of knowledge of foreign languages. As a result, the Working Group recommended that students undertaking a course of primary school teach education have attained a languages qualification at Higher level or equivalent either on entering the course of initial teacher education or on its completion.

Recommendation 21: The Working Group also recognised that primary teachers should have a good understanding of language including additional languages. To achieve this, the Working Group recommended that students seeking to become primary teachers in primary schools should undertake some study of the pedagogy associated with additional languages as part of Initial Teacher Education.

Recommendations 24-26: The Working Group recognises that the increased provision of foreign language teaching will require an expansion of the number of suitably qualified language teachers. As a starting point, the Working Group has recommended an audit of the number of primary school teachers who have undergone training in teaching modern languages in primary schools and an assessment of how many are actually engaged in such teaching. In addition, the Working Group has recommended that there be a national recruitment strategy and campaign aimed at encouraging the ablest of young people with requisite qualifications and an interest in languages to embark on initial teacher education (ITE) in language teaching in secondary schools and teaching which will involve language teaching in primary schools.

Recommendations 30-31: The Working Group recommended that exposure to native speakers of another language can be a valuable support in teaching children a language. Linked to this, the Working Group drew attention to the value of foreign language assistants (FLAs) in the classroom and suggested that in recent years there has been a sharp decline in FLA provision. According to the Working Groups report the number of FLAs fell from almost 300 in 2005-06 to only 59 in 2011-12. As a result, the Working Group recommended that FLAs should be considered a key element of the implementation of 1+2. In addition, the Working Group recommended that schools and local authorities consider

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the engagement by schools of other trained skilled and trained native speakers of foreign languages to work under the supervision of the classroom teacher.

Recommendations 34-35: The final recommendations of the Working Group relate to implementation of the 1+2 policy. The Working Group recommended that the Scottish Government set up an Implementation Group which would be responsible for developing an Engagement Strategy to deliver the 1+2 policy.

Finally the Working Group acknowledges that implementation of 1+2 will involve potentially significant allocation of new resources though it stresses it can’t be certain of the level of resources as this depends partly on the outcome of the audit of current resources available. The Working Group states:

“The Working Group is aware that prior to 2008 local authorities received £4 million by way of ring-fenced funding to support their language provision in schools. While this funding was rolled up into the general local government expenditure settlement and, therefore, is still available to local authorities, the Group is of the view that, if delivery of the 1+2 language policy is to be successful, further dedicated resources will be required. This is likely to be of the order of 2-3 times the previous languages fund, tailored, as resources allow, to enable local authorities to take forward their proposed language strategies on a phased basis from 2013-14 and beyond.”

Scottish Government Response to the Working Group Report

In November 2012, the Scottish Government issued its response to the Working Group’s report12. The Scottish Government welcomed the report and its 35 recommendations either in full or in part.

Specifically, the Scottish Government welcomed the commitment to introduce the teaching of a first foreign language in Primary 1 and for the teaching of a second language at a later stage of primary school.

As a result of accepting the recommendations of the Working Group the Scottish Government said it would:

work with the range of stakeholders identified in the report as having a key role to play in taking forward implementation of the 1+2 languages policy, especially local authorities through COSLA and ADES.

develop an engagement strategy, including an Implementation Delivery Group, to take forward implementation of a 1+2 languages model for Scotland’s schools

run in partnership with ADES (Association of Directors for Scotland) a national languages event in November 2012 to promote debate and identify actions for taking forward the 1+2 languages policy

provide £120,000 to fund projects in the 2012/13 school year to demonstrate ways in which schools can move towards the 1+2 model

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Language Learning in Scotland: A 1+2 Approach – The Scottish Government’s Response to the Report of the Languages Working Group http://www.scotland.gov.uk/Topics/Education/Schools/curriculum/ACE/LanguageLearning/SGResponse-Revised

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provide additional £4 million in 2013/14, subject to parliamentary budget approval, to support local authority language plans and will discuss with COSLA and ADES the longer term planning and resourcing issues for implementation of the 1+2 policy

examine with GTCS and HE institutions the implications of a 1+2 languages model for the future training needs of teachers.

The Working Groups recommendations along with the Scottish Government’s response are attached at Annex B.

FOREIGN LANGUAGE TEACHING ACROSS THE EUROPEAN UNION

In July 2012 the European Commission published “Key Data on Teaching Languages at School in Europe 2012”13. This section of the paper presents some of the key findings and data to come from the Commission’s publication.

Key Data on Teaching Languages at School in Europe 2012 provides a range of information including data on the role of foreign language teaching in the curriculum, the range of foreign languages offered and taught, how foreign languages are taught in schools, classroom time devoted to foreign language teaching and the elements of foreign language taught at primary school.

The Position of Foreign Languages in the Curriculum

According to the European Commission:

“In Europe, pupils are generally between 6 and 9 years old when they have to start learning a foreign language. In Belgium (German-speaking Community), pupils are even younger as they are taught a foreign language in pre-primary education from the age of three. The tendency to offer this provision from an earlier age than previously is evident in many countries which have implemented reforms or pilot projects to bring forward the teaching of foreign languages. From 2004-05 to 2009-10, the percentage of pupils enrolled in primary education not learning a foreign language dropped from 32.5% to 21.8%.”

Most EU Member States start foreign language teaching during primary education. For example;

“Schools in Estonia, Finland and Sweden have some freedom to determine the grade in which the first foreign language is introduced as a compulsory subject. Central education authorities define an age bracket for the introduction of foreign languages: between 7 and 9 years old in Estonia and Finland and between 7 and 10 in Sweden.”

Similarly, in Spain, Italy, Luxembourg, Austria, Lithuania and Portugal the first foreign language as a compulsory subject is taught at age 6, in France it is taught at age 7 and in Germany at age 8.

Over recent years, the trend has been for countries to introduce the compulsory learning of a foreign language at an increasingly early age. According to the European Commission:

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http://eacea.ec.europa.eu/education/eurydice/documents/key_data_series/143EN.pdf

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“Between 1993-94 and 2010-11, only nine countries or regions within countries did not lower the starting age for the compulsory learning of a foreign language by all students.”

Many European countries also teach a second foreign language as a compulsory subject. For instance, Luxembourg begins teaching a second language at age 7. In most other countries, the learning of a second foreign subject begins at secondary school with the exception of Greece, Estonia and Latvia where a second foreign language is compulsory at the end of primary school.

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http://eacea.ec.europa.eu/education/eurydice/documents/key_data_series/143EN.pdf

Pilot Projects

Ten countries have established projects to pilot the teaching of more languages than

those already provided within the minimum level of educational provision, or to lower the

starting age of foreign language teaching. All these projects are organised and funded or

co-funded by the education authorities.

In Ireland, Greece, Latvia, Lithuania and Austria, the projects are piloting the introduction

of foreign language teaching where it is not yet taught as a compulsory subject. In

Lithuania, German is being introduced in 26 pre-primary institutions. Similarly, in Austria,

numerous projects funded from different sources – including public sources – have

introduced English to pre-primary school children. A very small number of other projects

focus on other languages. In Ireland, where the teaching of foreign languages is not

compulsory, over 500 primary schools (out of 3 165) teach French, German, Spanish or

Italian as part of the Modern Languages in Primary School Initiative. In Greece and

Latvia, the projects are piloting new developments that should soon be fully

implemented. In Greece, 800 selected primary schools are introducing the teaching of

English to students aged 6 to 8. This teaching will be extended to all schools in 2013. In

Latvia, the project is piloting the new language (English, French and German)

programme for students aged 6 to 11.

In Denmark, the Netherlands, Portugal, Finland and Norway, the pilot projects give

students the opportunity to learn more or alternative languages (usually French and

German), to the one most commonly learnt, which is English in most cases. The main

objectives of the Finnish, Norwegian and Danish projects are to encourage students to

study more languages than English or to study them earlier than expected by the

national curriculum. In Finland, the project targets students aged 7 to 16. In Norway, it

targets students aged 11 to 13 and explicitly aims at developing a positive attitude to

multilingualism. It will run from 2010 to 2012 and be evaluated before a decision is taken

on general implementation. In Denmark, the project offers students aged 12 the

opportunity to start learning French or German rather than at age 13 as set down in the

curriculum. In the Netherlands, one project investigates how the teaching of French and

German can best be introduced into primary schools, where all students must already

learn English. A second pilot project aims to introduce Chinese at secondary level.

Depending on the schools, Chinese is taught in addition to or instead of the two

languages normally taught (French and German). In Portugal, the pilot project's objective

is to start teaching a second language to students aged 10, rather than at age 12, which

is the normal age for introducing the second language as a compulsory subject.

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The Range of Foreign Languages Taught

In 15 countries or regions within countries, specific requirements are laid down by central education authorities stating which languages students must learn during their school life. All schools must provide these specific mandatory languages in the school curriculum

In nine countries, central authorities require schools to offer specific languages to students. Five of these countries also belong to the previous category where at least one specific mandatory language (i.e. English) is imposed on students. In Denmark, all schools must offer German to students from the age of 13 but they may also offer French in addition. In Sweden, all schools must offer at least two languages from French, Spanish and German during compulsory education and the three languages at upper secondary education. In Norway, all lower secondary schools must offer at least one of the following four languages: French, German, Spanish or Russian. In Cyprus, all schools at upper secondary level are asked to offer not only English and French, which, at that level, are no longer compulsory for students, but also German, Italian, Spanish, Turkish and Russian. In Malta, at lower secondary level, all secondary schools must provide Italian, French, German, Spanish, Arabic and Russian, in addition to English, which is mandatory for students to learn. At upper secondary level, Greek and Latin are added to the list.

The last four of the nine countries which require their schools to offer specific languages to students, do not place any obligations on students to study the languages. In Portugal, all schools must offer English to students aged 6 to 10. In Slovenia, English or German must be offered from primary level.

In Lithuania, the same languages, plus French, must be included in the school curriculum from primary level. In the Czech Republic, schools must offer English before any other languages to primary school students. If pupils (or parents) choose a language other than English, the school must inform them that the educational system cannot guarantee continuity in the teaching of the chosen foreign language when they move on to secondary education, or if they move to another school.

In 14 countries or regions within countries, all students must learn English and, in most cases, it is the first language they have to learn. French is more commonly a second specific mandatory language. According to Eurostat, “looking at the situation in the European Union as a whole, the proportion of pupils enrolled in primary education learning English increased by around 12 %, from 60.7 % in 2004/05 to 73 % in 2009/10”.

Minority Languages

In many European countries, numerous regional or minority languages as well as non-territorial languages are spoken. In some of the countries concerned, these languages have official status. In nearly two-thirds of countries, central education authorities recommend or require that certain regional or minority languages, or non-territorial languages, are included in the school curriculum. In many countries, all the languages granted an official status feature in curriculum recommendations or requirements. France and Lithuania, which do not give official status to any regional or minority languages, still specify that regional or minority languages may be included in the school curriculum.

In a few countries, some regional or minority languages are obligatory for all or some students. This is the case of Catalan, Valencian, Basque and Galician, which are specific

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mandatory languages in the Spanish Autonomous Communities where they are co-official languages with Spanish. In the Netherlands, Frisian is compulsory for all students in the province of Friesland. In the United Kingdom (Wales), all students must learn Welsh.

How Foreign Languages Are Taught

The European Commission’s report suggests that in primary education, across the European Union a mixture of either specialist language teachers or generalists will teach foreign languages to classes.

“While the generalist model is the most common, six countries (Bulgaria, Greece, Spain, Portugal, Slovakia and Turkey) have entrusted foreign language teaching to subject specialists (i.e. teachers qualified to teach either two different subjects, one of which is a foreign language; or, one or more foreign languages). In Denmark, foreign languages are taught by semi-specialist teachers (i.e. teachers qualified to teach a group of at least three different subjects).

…In Poland generalist teachers may only teach in the first three grades of primary education; to teach a foreign language they must gain additional qualifications. In the upper grades of primary education, however, foreign languages must be taught by specialist teachers.

Usually, the general guidelines and recommendations on the degree of subject specialisation foreign language teachers should have in primary education do not have to be rigidly followed and schools have some autonomy in this respect. For example, in the Czech Republic, France, Italy, the Netherlands and Liechtenstein, it is expected that foreign languages in primary education are taught by generalist teachers, but in practice, they are also taught by subject specialists or de facto specialist/semi-specialist teachers (i.e. generalist teachers with good foreign language skills who teach foreign languages in several classes). This often arises because not all generalist teachers have acquired competences and/or a qualification in this area.

In Ireland, Latvia, Luxembourg, Romania, Finland, the United Kingdom and Norway, there are no recommendations on the degree of subject specialisation for foreign language teachers, consequently, practice varies. In some of these countries, generalist teachers predominate (e.g. in Luxembourg, the United Kingdom and Norway), while elsewhere, specialist teachers are more common (e.g. in Romania and Latvia).

In general, it seems that a lack of qualified foreign language teachers is often a matter of concern in primary education. This may be because children now learn foreign languages at an earlier age and education systems have not yet fully adapted to these changes. A number of measures have been taken across Europe to address the shortage of foreign language teachers in primary education. These actions include programmes for upgrading the qualifications of generalist teachers as well as revising the content of initial teacher education for prospective primary education teachers.”

Classroom Time Devoted to Foreign Language Teaching

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In about two-thirds of European countries, central education authorities issue recommendations on taught time for the grades in which foreign language teaching is provided during full-time compulsory education. In six countries, however, schools enjoy some autonomy in deciding on the distribution of taught time for foreign languages: in Estonia, Poland, Finland, Iceland and Norway, the recommended taught time is given for each educational cycle, while in Sweden a global figure is recommended for the whole period of compulsory education. In Belgium (Flemish Community), the Netherlands and the United Kingdom, official recommendations on taught time apply to all curriculum subjects together; consequently, schools have the flexibility to decide how they allocate the time to teaching individual subjects according to their particular circumstances.

Where the teaching of the first foreign language starts early, the taught time devoted to it during the first years is often shorter than in the countries where teaching starts at a later stage. Indeed, in several countries (e.g. Bulgaria, Spain, France, Italy, Lithuania, Liechtenstein and Croatia) where the first foreign language is taught from primary 1 or primary 2 the amount of taught time in the first year of teaching ranges between 29 and 54 hours per year. Where the first foreign language is introduced in primaries 4 or 5, (i.e. Belgium (French Community), Denmark, Cyprus, Hungary, Portugal, Slovenia and Turkey), the annual amount of taught time varies between 47 and 83 hours during the first year of teaching.

In Belgium (German-speaking Community), Luxembourg and Malta, however, learning a foreign language starts very early with very high levels of taught hours. In these countries, the first foreign language pupils learn rapidly becomes a language of instruction. Hence, they need to acquire high levels of language skills very quickly in order to be effectively taught non-language subjects through their first foreign language. In Luxembourg, the second foreign language, which is introduced in primary 2, also becomes a language of instruction.

The Importance of Different Elements of Language Teaching

One of the central goals of foreign language teaching is the acquisition of communication competences, which cover the four main communication skills: listening, speaking, reading and writing. An analysis of official curricula shows that 15 European countries issue recommendations which give equal weight to all four skills, from the start of compulsory foreign language teaching through to the end of full-time compulsory general education.

This is not the case, however, in 11 countries where, at the start of compulsory foreign language teaching, more emphasis is placed on listening and speaking, i.e. on oral communication. The exceptions are in Denmark which prioritises only speaking, and in Greece and the Netherlands which also add reading to the oral communication skills. Nevertheless, at the end of compulsory education, by and large, all four communication skills are considered equally important and none takes priority over the others. Only in Denmark, does the focus, at this latter stage, continue to be placed on oral communication.

Seven countries make no specific reference to priorities in their curricula. However, in some of these countries, other steering documents, such as assessment guidelines in Portugal, specify priorities regarding some or all of the communication skills.

Trends over the last few years show that more countries now give equal importance to the four communication skills from the outset of compulsory foreign language teaching. This is

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the case in Poland, Malta and Romania where reforms have been recently introduced. A similar reform has been implemented in Cyprus starting from 2011-12. Contrary to this trend, in Liechtenstein, due to the earlier start of compulsory foreign language teaching, the main focus of learning objectives has been moved from the four communication skills to the development of language awareness through oral communication.

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ANNEX A – MODERN LANGUAGES PRINCIPLES AND PRACTICE

What learning and teaching approaches are useful in modern languages?

How does the framework promote effective teaching and learning where children start their learning of a modern language before P6? Although Primary 6 is currently the most common point at which pupils begin to learn a modern language, many children begin earlier, including in pre-school. The experiences and outcomes take account of differing starting points. At early and at first levels, children will be developing generic skills in their first language. These include taking part in conversations, developing listening, reading and writing skills and knowledge about language. All of these are relevant to learning other languages. Within modern languages at these stages teachers will build on children’s natural curiosity for sounds and words, and their strong desire to communicate. Activities will include playing games, singing songs, carrying out simple instructions, and playing with simple poetry and rhyme. In this way they can begin to be enthusiastic, confident language learners from the outset. Whenever they start their learning of another language, children need to experience success by taking part in practical activities that they can enjoy. Language learning is greatly enhanced where it is linked to or embedded in the wider curriculum so that children and young people can enjoy exploring and using language in meaningful contexts. Very importantly, teachers can make great use of opportunities to link language learning with progress in English and with other languages used by people in the school community, enabling children to explore and experiment with sound patterns and make links and comparisons between languages. What does the framework mean more generally for teachers? Learning in the modern languages provides opportunities to create relevant, coherent, enjoyable and successful learning experiences which include the following four elements:

awareness of the skills required to be an effective learner of languages

awareness of social, cultural and geographical aspects of the countries where a particular language is spoken

knowledge about language structures that allows the learner to check the accuracy of her/his language use and to create new language

the ability to communicate in relevant and realistic contexts.

As children and young people develop their modern language skills, teachers will plan to achieve an appropriate balance between the development of language learning skills and the development of competence in the new language. This may involve changing the balance of these four elements: the first two of these elements being more predominant in the earlier stages of language learning and the final two being more predominant in later language learning.

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The open-ended nature of the experiences and outcomes allows for creativity and flexibility and allows primary teachers to focus on teaching methodologies for skills development and for a deeper understanding without having to plan for too much content/topic coverage. The statements of experiences and outcomes provide support to primary teachers as they plan to:

establish a solid basis for the lifelong learning of modern languages

ensure that young people experience success and retain initial enthusiasm

achieve balance between coverage of language content and development of effective language learning skills

discuss similarities and differences of how pupils have acquired and learned their first or home language and how this impacts on the learning of a second language

encourage young people to investigate and report back on aspects of culture and geography.

As teachers use these statements of experiences and outcomes to support their planning, by the end of Primary 7, the majority of children will have learned the skills necessary to:

give a short presentation about themselves

take part in simple conversations and transactions

understand classroom instructions and personal information

enjoy listening to a story, song or poem

read aloud a simple text

read and understand a short text

write a few sentences about themselves and others. The framework supports secondary teachers in liaising closely with primary teachers to build not only on what has been achieved but also on the learning experiences with which children and young people will be increasingly familiar. By embedding the principles of Assessment is for Learning within their classrooms, teachers will encourage young people to reflect on, to take increasing ownership of and to assume more responsibility for their own learning; they will make use of self-assessment to identify their strengths and development needs from the evidence of their efforts and act on feedback given from peers as well as teachers in order to plan their next steps. The statements of experiences and outcomes provide support to secondary teachers as they plan to:

create meaningful relevant contexts for learning including the appropriate use of ICT

develop interdisciplinary projects where appropriate to build on collaborative learning

make clear the links between the learning and teaching of modern languages and other areas of the young people’s learning, including enterprise, international education and citizenship

establish an acceptable level of competence approximating to SCQF Level 4 and achievable by most pupils by end of S3.

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How can effective use of information and communications technology (ICT) help to improve learning and teaching? Curriculum for Excellence offers an opportunity to further develop learning and teaching experiences that are relevant and enjoyable. This includes making effective use of information and communication technology to enhance teaching and learning, and to provide real-life contexts that motivate children and young people and help them to see a purpose to their language learning. Online research by teachers and learners alike will help them to develop their knowledge, understanding and appreciation of the culture surrounding the language which they are learning, and the use of ICT can bring them directly into contact with people from around the world. Will the framework help to address the need for our young people to be equipped with high levels of language learning skills? Are we ‘raising the bar’ in terms of what we expect from our learners? We are certainly raising the bar to the extent that, without placing a ‘ceiling’ on higher levels of achievement, we expect the majority of young people to achieve by the end of S3 a level of performance in each language skill which approximates to the level of performance associated with SCQF level 4. The achievement of fourth level outcomes represents a substantial and useful level of competence closely linked to Basic User level on the Common European Framework of Reference for Languages (CEFR).

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ANNEX B - Response to Recommendations of Language Learning in Scotland: A 1+2 Approach14 Scottish Ministers welcome the 35 recommendations of the Language Learning in Scotland: A 1+2 Approach report, either in full or in part, while recognising that many of them will require further discussion with local authorities and other key stakeholders. In particular, those recommendations that relate to issues of student teacher entry qualifications, course content and support, etc will require further consideration in the light of the National Partnership Group response to the Graham Donaldson (Teaching Scotland’s Future) report.

Recommendation

Response

1. The Working Group recommends that schools offer children access to an additional language from Primary 1.

Accept. Scottish Ministers welcome this recommendation which is in line with moves elsewhere in Europe towards earlier language learning. (Section 1)

2. The Working Group recommends that local authorities and schools develop a 1+2 strategy for language learning within which schools can determine which additional languages to offer. As part of this strategy, consideration should be given to teaching modern European Languages, languages of the strong economies of the future, Gaelic and community languages of pupils in schools.

Accept. Scottish Government will support and work with local authorities to help them develop language plans that take account of local circumstances and priorities. (Section 1)

3. The Working Group recommends that the Scottish Government fund a number of pilot projects in 2012-13 on introducing access to language learning in primary schools from Primary 1 on a phased basis from 2013-14.

Accept. Scottish Government is providing up to £120,000 in the 2012-13 school year for pilot projects to demonstrate how a 1+2 approach to language teaching and learning might be delivered. (Section 1)

4. The Working Group recommends that a second additional language (L3) be introduced for pupils at a later stage in the primary school. The time for introduction of the L3 language would be a matter for schools and Local Authorities to determine but no later than P5.

Accept. It is recognised that this recommendation will require time to be implemented and will need to be carried forward in a way that does not detract from first additional language acquisition. The suggestion that a second language may be introduced through interdisciplinary learning is welcome. (Section 2)

5. The Working Group recommends that Education Scotland and Scotland’s National Centre for Languages provide support for approaches to the introduction of the 1+2 policy including interdisciplinary working

Accept. Education Scotland and SCILT have welcomed the Languages Working Group report and the Scottish Government will work closely with both organisations on delivery of pilot

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http://www.scotland.gov.uk/Topics/Education/Schools/curriculum/ACE/LanguageLearning/SGResponse-Revised

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Recommendation

Response

initially through support for piloting and trialling in schools.

programme in 2012-13 and support for delivery of 1+2 policy in general. (Section 5)

6. The Working Group recommends that there be regular planned exposure to L2 and L3 languages.

Accept. This recommendation is linked to recommendation 4 above.

7. The Working Group recommends that local authorities work with their schools to address the organisational and curricular issues arising from earlier access of learners to language learning.

Accept. While it is for schools to consider how best to introduce earlier language learning there are schools that already do so from P1. Scottish Government will work with Education Scotland and SCILT to help identify and disseminate the lessons to be learned from a sample of schools identified as providing language learning from Primary 1 already and from pilot projects in 2012-13. (Section 2)

8. The Working Group recommends that primary and secondary schools work effectively together to ensure articulation between the sectors in terms of content, skills and approaches to learning and to enable effective transition, progression and continuity between P7 and S1, particularly for the L2 language.

Accept. Research suggests that many primary schools do not have any specific language links with their secondary schools and this will need to be addressed. Implementation of this recommendation within local language plans can help ensure that effective account can be taken of prior language learning. (Section 2)

9. The Working Group recommends that language learning be recognised as an entitlement for all young people through to the end of their broad general education, S1 to S3.

Accept. There are concerns that some schools allow young people to opt out of language learning beyond first or second year of secondary school. Scottish Ministers are concerned at the suggestion that schools are not providing the entitlement to languages learning beyond early secondary. Scottish Government therefore welcomes this recommendation as recognising that the entitlement to language learning should continue throughout the broad general education. (Section 2)

10. The Working Group recommends that within the broad general education schools further develop the links between language learning and issues of employability and citizenship.

Accept. Scottish Ministers welcome the case that the Languages Working Group report makes for links between languages, business and employability, and global citizenship. Scottish Government will continue to fund SCILT for its role in promoting

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Recommendation

Response

languages, including its work with Business Language Champions (Section 2)

11. The Working Group recommends schools develop language learning for L3 during the broad general education, choosing from a range of approaches including interdisciplinary working, and that these be piloted within the early stages of implementation.

Accept. This recommendation (and related recommendations 9 and 12) suggests that there is a range of approaches that can be considered when developing language learning in respect of a second additional language. This is an area of development that will be included in some of the pilot projects in 2012-13. (Section 2)

12. The Working Group recommends that the Content and Language Learning Integrated (CLIL) approach be further explored as an option in secondary schools.

Partially accept. It is for schools to decide upon the approaches that are most relevant and best suited for them

13. The Working Group recommends that local authorities ensure that their languages strategy (Recommendation 2) takes account of social deprivation challenges and of the different issues faced in urban and rural areas.

Accept. Scottish Ministers believe that a 1+2 approach is relevant for all schools but recognise that how this is delivered needs to take account of local factors and circumstances and these should be reflected in local language plans. (Section 2)

14. The Working Group recommends Education Scotland lead on support for curriculum development in schools within the context of 1+2 policy.

Accept. Education Scotland has welcomed the report and will continue to support teachers and schools, working with SCILT and other partners, as schools move to implement the recommendations of the report.

15. The Working Group recommends languages learning and development be supported by greater use of IT (including GLOW), social networking, media (e.g. subtitled foreign films, television, radio) together with the development of opportunities in areas such as theatre, song, etwinning and international visits.

Accept. Between them Education Scotland and SCILT make available or promote a range of resources for language teaching and learning. Scottish Government will work with both organisations to keep resources under review as implementation of a 1+2 approach is further developed. (Section 3)

16. The Working Group recommends that schools provide all young people with flexible opportunities and encouragement to study more than one modern language to the level of a National Qualification Unit or course, in the senior phase, whether in their own school or through cluster arrangements with other schools.

Accept. Where learners have a real sense of the value of language learning and find it stimulating and enjoyable they are more likely to take languages to certificate level and beyond. Many schools already operate cluster or consortium arrangements and it is for local authorities to consider how such

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Recommendation

Response

arrangements might operate within the local languages plans. (Section 2)

17. The Working Group recommends that schools and local authorities ensure that young people have appropriate information on the value of learning languages to certificate level in terms of language and communication skills, employability and citizenship.

Accept. As described at Recommendation 10 the use of Business Languages Champions can help promote the value of languages for employability. (Section 2)

18. The Working Group recommends that SQA keep under review the suite of languages offered at certificate level in light of 1+2 implementation.

Accept. Scottish Government will continue to engage with SQA to consider any qualification issues arising from implementation of a 1+2 policy.

19. The Working Group recommends that there be further engagement with the FE and HE sectors to look to develop the experience of language learning for students.

Accept. Recent pilot work with Edinburgh University students shows the potential of partnership working between schools and universities, with appropriate training, to provide further opportunities for young children to engage in language learning. Scottish Government will engage with Scottish Funding Council and universities to consider what implications may arise from implementation of the 1+2 policy.

20. The Working Group recommends that students undertaking a course of primary school teacher education have a languages qualification at Higher level, or equivalent (SCQF level 6), either on entering the course of initial teacher education or on its completion.

Partially accept. Refer to GTCS for consideration. The GTCS, in its forthcoming review of the memorandum on entry requirements will consider whether this should be reflected in the criteria for entry to programmes of initial teacher education. (Section 4)

21. The Working Group recommends that all students seeking to become teachers in primary schools undertake some study of the pedagogy associated with additional languages as part of Initial Teacher Education.

Accept. The move to earlier language learning will raise questions of how best to prepare future teachers for what is expected of them in terms of teaching languages. This needs to be done in the context of the NPG’s report in response to the Donaldson review and the work that universities have already started to introduce new concurrent degrees. (Section 4)

22. The Working Group recommends that local authorities should provide regular opportunities for primary and secondary languages staff to work together and to undertake shared CPD opportunities.

Accept. Effective transition arrangements, including mutual support and cooperation, should be part of local languages plans if a 1+2 approach is to be successful. (Section 4)

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Recommendation

Response

23. The Working Group recommends that universities work together as a consortium of university providers to support delivery of the 1+2 policy and that languages departments in universities play a greater role in working with schools subject to appropriate funding.

Partially accept. Scottish Government recognises the role that the higher education sector can play in supporting the 1+2 policy. It is for universities themselves to decide what contribution the development of consortium arrangements can bring to their engagement with schools.

24. The Working Group, with a view to informing planning and resourcing, as well as CPD needs, recommends that an audit of the number of primary school teachers who are MLPS or GLPS trained be undertaken along with collection of information on how many of those trained are currently engaged in teaching languages.

Accept. The move, over time, to language learning from Primary 1 raises questions over the number of teachers with the necessary skills to deliver this. Research by SCILT suggests that there is likely to be an untapped resource within primary schools. Currently, many primary school teachers who have undertaken MLPS training may not have the opportunity to use these skills. The recommendation for an audit of MLPS or GLPS trained teachers will be helpful in determining the professional learning needs of primary teachers. (Section 2)

25. The Working Group recommends that teachers with an interest and aptitude for languages teaching be supported in developing the range of languages in which they are qualified or trained to teach.

Accept. Implementation of a 1+2 approach will require best use of all available resources including the potential for existing language teachers to extend their range of language skills. Scottish Government will discuss with local authorities what further support can be offered to help build teacher capacity within the system. In the meantime Scottish Government has enhanced its support for SCILT to enable it to extend its CPD provision for language teachers.

26. The Working Group recommends that there be a national recruitment strategy and campaign aimed at encouraging the ablest of young people with requisite qualifications and an interest in languages to embark on initial teacher education (ITE) in language teaching in secondary schools and teaching which will involve language teaching in primary schools.

Partially accept. Successful implementation of a 1+2 approach will depend on encouraging teachers to review and build on their current language skills as part of a culture of career long professional learning. in addition, attracting well qualified young people with an interest in languages to take up a teaching career in secondary schools will be important for the future. The question of whether this requires a

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Recommendation

Response

specific national recruitment strategy is one that Scottish Government will consider in discussions it will have in terms of ongoing teacher workforce planning and in the light of Recommendation 27. (Section 4)

27. The Working Group recommends that Scottish Government and Universities work with local authorities, drawing on the work of the Teacher Workforce Planning Group, to adopt a detailed planning process for identifying the need for future numbers of language teachers.

Accept. As with recommendation 26 Scottish Government will work with local authorities and university providers to consider future staffing implications of a 1+2 approach to languages. (Section 4)

28. The Working Group recommends that GTCS promote improved professional standards in language teaching and encourage teachers to gain qualifications and accreditation in languages for example through raising awareness of professional recognition processes available to teachers.

Accept. The GTCS’s Framework for Professional Recognition allows teachers to gain recognition in areas of expertise. GTCS is keen to encourage teachers to apply for Professional Recognition and Scottish Government will work with them to consider how this can be actively promoted to more language teachers. (Section 4)

29. The Working Group recommends that teachers continue to engage with the languages they are teaching through CPD, study, use of media and IT as well as through personal and professional engagement with native speakers of the languages which they teach

Accept. Career long learning is a key part of the National Partnership Group response to Teaching Scotland’s Future. (Section 4)

30. The Working Group recommends that the appointment of Foreign Language Assistants are considered a key element of the work of the implementation of 1+2 and work on this be undertaken involving local authorities, British Council Scotland and Scotland’s National Centre for Languages.

Accept. Scottish Government will continue to support British Council Scotland to promote the value of language assistants in supporting language learning in Scottish schools. (Section 3)

31. The Working Group recommends that schools and local authorities consider the engagement by schools of other skilled and trained native speakers of additional languages to work under the direct and explicit supervision of the classroom teacher in schools.

Accept. Scottish Ministers recognise the value that learners can derive from hearing native or fluent language speakers. It is for local authorities and schools to decide how to make best use of the contribution that such speakers can bring to their language provision (Section 3). See also comment on Recommendation 19 above.

32. The Working Group recommends that EAL work and delivery is incorporated into

Accept. As with Recommendation 13 it is important that local language plans

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Recommendation

Response

local authority strategies for the 1+2 policy delivery in schools.

are inclusive of the needs of all learners and take account of local communities and circumstances. (Section 2)

33. The Working Group recommends further development of the links involving cultural organisations, local authorities, language communities and schools.

Accept. Scottish Government will work with COALA, local authorities and other bodies to take this forward and derive maximum benefit from foreign language communities in Scotland.

34. The Working Group recommends that Scottish Government set up an Implementation Group charged with developing an Engagement Strategy to deliver the 1+2 languages commitment.

Accept. Scottish Government will establish an Implementation Delivery Group to take forward delivery of a 1+2 languages approach and to promote partnership working across key stakeholders responsible for delivering language provision in schools. (Section 1)

35. The Working Group recommends that Scottish Government fully consider the resource implications for stakeholders supporting the introduction of the 1+2 languages policy and engage with COSLA to consider the case for making dedicated appropriate additional funding available to local authorities.

Accept. Scottish Government will work with COSLA and ADES to examine resource implications of a 1+2 approach to languages. (Section 1).

Iain McIver

SPICe