I strongly recommend the introduction of a double major system at universities, which has already been introduced in countries such as Australia and the United States. In Australia, particularly, economics and Japanese is a very popular combination. The system allows students who really want to study English seriously to study in a concentrated manner for one or two years, as the system is now, or possibly even for four years as part of their double major programs. English is difficult for Japanese, and difficult languages should be taught only at university. Eighteen is an ideal age to learn a language as they have the proper motivation and their brain still can absorb a lot quickly.
Motivation is very important.
I believe the discussion is very much like the debate on entrance exams. They keep arguing about small details of the exams, such as whether to require interviews or essay writing, whereas, in fact, they should be arguing whether they need entrance exams or not, over the whole system. It is the same way in English. I myself in the committee am trying to push the discussion more into considering the whole system. For example, whether they really have to study English at high school.