Language Policies
Medium-term Programme (2006-2009)
Language Policies for Democratic Citizenship and Social Inclusion
The Division’s activities address three broad domains: analysis and development of policies for plurilingualism; European standards for quality and transparency; language policies for the education of minorities. In addition, the Division contributes on language policy in the context of bilateral or regional co-operation and assistance programmes.
The proposal for the medium-term programme 2006-2009 is presented as four main interrelated projects which represent a combination of new activities and the further development of others.
Outline of Project aims
The main innovation concerns the proposal in project 1 to add a new policy domain through the analysis and development of policies and standard setting instruments for language(s) of education. Accordingly, in the follow-up to the 3rd Council of Europe Summit concerning social cohesion and democratic citizenship, it is proposed to develop policy guidelines and tools for the development of competences in the language(s) of education. In addition to examining core competences, the specific needs of vulnerable groups, in particular disadvantaged native speakers and migrants, will be addressed.
In project 2, it is proposed to continue and further develop the Language Education Policy Profile activity, which offers expert assistance to member states in analysing and planning policies in a coherent global approach, taking into account Council of Europe policy documents, and in particular the (revised) Guide for the Development of Language Education Policies in Europe.
Through project 3 the Division aims to respond in a more comprehensive manner to the increasing number of requests from Member States and institutions for further guidance concerning the levels in the Common European Framework of Reference for Languages (CEFR), which is widely used for curricula and examinations. The levels in the CEFR, which are also in the European Language Portfolio, are now included in Europass (EU scheme to facilitate mobility through transparency in vocational qualifications). Following on the Barcelona Council (2002) and the Communication from the Commission (July 2003), skills will be measured at the end of compulsory education using the levels of the CEFR.
A number of member states are using the proficiency standards in the CEFR for language training and for examinations linked to granting permanent residence or citizenship to adult migrants. A further aim of the project is to assist in promoting transparency and equity where language examinations are used.
In addition, a new activity on common curriculum standards for the Romani language, after some exploratory work, will be developed drawing on the CEFR standards and adapted to the specific socio-linguistic context of Romani.
In project 4 these standards, and intercultural learning, will be further promoted in school and adult education contexts through the consolidation of policy and support material for developing and disseminating the European Language Portfolio (ELP). The ELP project will link closely to current ELP implementation activities at the ECML.
PROJECT 1: Policies and standards in languages of education
Effective reading and writing skills in the language(s) of school instruction are essential for successful learning across the whole curriculum. These skills are not always equally acquired by pupils (as the OECD PISA studies show), and are not always clearly defined in terms of competences to be developed. National delegates to the Language Policy Forum (June 2004) supported the development of convergences between different kinds of languages and in that context new work on curriculum standards for languages of education. In addition, the project will take account of the needs of disadvantaged native speakers and migrants in acquiring the necessary skills in these languages for successful school learning.
The project aims to support social inclusion and equal opportunities for successful learning by (i) analysing and defining approaches to curricula for languages of education, with a view to elaborating a prototype instrument for planning teaching and assessment, taking into account the language skills needed for study across curriculum areas; (ii) examining current practices for the acquisition of the language of instruction by disadvantaged native speakers and migrant children in order to support their efficient integration into the education system (iii) exploring possible links with learning, teaching and assessment in foreign (and other) languages in order to promote a coherent approach to language education;
PROJECT 2: Language Education Policy Profiles
The project consists of an offer by the Council of Europe to support member states in reviewing and planning policy (at national, regional or local level). The Language Education Policy Profile activity has attracted ten countries since 2002, and further applications are expected. A transversal study will be undertaken when further countries have completed the Profile.
The aim is to promote policy coherence through a holistic approach involving all languages. Individual member states identify their specific priorities, which become the focus of special examination. The activity is carried out in a spirit of dialogue between the national or local authorities and the Council of Europe experts who act as a catalyst for reflection with and between national/local policy makers and experts representing all the languages in the education system.
PROJECT 3: European proficiency standards for transparency and quality
- 3.1 3.1 Relating language examinations to the Common European Framework of Reference for Languages (CEFR)
The Language Policy Division has developed (in draft version) a ‘Manual for Relating Language Examinations to the Common European Framework of Reference for Languages (CEFR)’ to assist examination bodies in linking their certificates to the Common Reference Levels in a reliable and proven manner. Videos/DVDs illustrating oral performance at each of the CEFR levels and a CD-ROM with examples of test items for reading and listening for these levels are available or in preparation for a number of languages as support material.
In addition, Reference Level Descriptions are being elaborated by teams of experts for individual national and regional languages to illustrate the six levels in linguistic detail using a common approach. These instruments aim to identify for each specific language the linguistic means corresponding to the levels defined by the CEFR.
These documents and tools are part of the CEFR “toolkit” currently being developed by the Language Policy Division. The European Commission contributes to the project as well, as it is currently producing a reading and listening item bank at level B1 for English, French and German.
These language proficiency standards form the basis of the Barcelona Indicator, the purpose of which is to measure language competences in each European Union member State with a high level of accuracy and reliability.
The Language Policy Division’s project is intended to improve the quality of language education and certification by helping ministries of education and examination bodies to plan and measure student progress and to facilitate transparency and comparability in language assessment
- 3.2 3.2 Language requirements based on CEFR for adult migrants in relation to residence or citizenship
A number of countries now require newcomers to demonstrate a degree of proficiency in the official language of the receiving country in order to obtain long-term residence rights or citizenship. Some countries may recommend or require attendance at language classes while others may insist on an examination. Many examination and certification bodies responsible for testing language for granting residence permits or citizenship to non-nationals use the levels of the Common European Framework of Reference for Languages. Countries set different levels (varying from A1 to B1/2) and have different practices for assessing the level of applicants.
The Action Plan approved at the 3rd Summit of Heads of State and Government of the member States of the Council of Europe refers, in the context of nationality law, to the promotion of the acquisition of citizenship as a focus point of the Council of Europe. Accordingly, this activity aims to provide a follow-up to the Summit by offering to facilitate co-operation among political decision makers, relevant ministries, language testers and representatives of immigrants on the issues related to language requirements and certification for residence or citizenship purposes. It aims to promote transparency and equity in this process through a common understanding among officials and certification authorities of the levels and professional testing and certification standards.
- 3.3 3.3 Common curriculum framework for Romani
The 3rd Summit confirmed the Council of Europe’s commitment to combat all kinds of exclusion and insecurity of the Roma communities in Europe and to promote their full and effective equality. As a complementary action to the existing project Education for Roma/Gypsy children, it is proposed to support the teaching of Romani which serves as an expression of identity for members of the community. Preparatory work commenced in 2005.
The project aims to develop a common framework of reference for the development of curricula, drawing as appropriate on existing curricula in member states and adapting the structure of the Common European Framework of Reference for Languages (CEFR) for this purpose.
PROJECT 4: European Language Portfolio (ELP)
In 2005 there were 74 validated ELP models in 25 member states. The European Validation Committee (EVC), reporting to the Steering Committee for Education (CD-ED), accredits portfolios that are adjudged to correspond to the Principles and Guidelines agreed by CD-ED. The EVC also develops ELP policy and oversees implementation on behalf of the Steering Committee for Education.
The main challenge now relates to the wider dissemination of the ELP, and in particular to the quality of ELP implementation in formal learning contexts. Therefore, teacher training is crucial to the future success of the ELP concept and the ECML (Graz) is developing a teacher training kit for the ELP and is supporting implementation projects in member states.
The next phase aims to further promote the introduction of the ELP (in small scale projects initially) in a larger number of countries, and to improve the quality of ELPs submitted for validation.
The inclusion of one part of the ELP - the Language Passport – in Europass (EU) will provide a stimulus for the further development of electronic portfolios.
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