Opinion of the Committee of the Regions on 'Intercultural education` (97/C 215/04)

THE COMMITTEE OF THE REGIONS,

having regard to its decision of 15 November 1995, pursuant to the fourth paragraph of Article 198c of the Treaty establishing the European Community, to issue an Opinion on 'Intercultural education` and to direct Commission 6 - Education and Training to prepare the opinion;

having regard to the draft Opinion (CdR 194/96 rev. 2) adopted by Commission 6 on 7 February 1997 (rapporteur: Mr Efstathiadis, co-rapporteur: Mr Evans);

whereas the Council, on 23 October 1995, adopted a Resolution on the response of educational systems to the problems of racism and xenophobia highlighting the leading role to be played by education in preventing and eliminating prejudice, racist and xenophobic attitudes and called upon the Commission in cooperation with the Member States, to assist in the exchange of experience through dissemination of information on the contribution of European educational systems in combating racism and xenophobia and the integration of people of different ethnic, cultural and religious backgrounds;

whereas the Council in this Resolution also called upon the Commission, in cooperation with the Member States to exploit in particular the parts of the Socrates programme involved with the problems concerned, including school partnerships, exchanges of experiences on intercultural matters and teacher training;

whereas the COR, in its Opinion on the Proposal for a Council Decision proclaiming 1997 European Year against Racism (), underlined the key role of education in reducing or preventing racist, xenophobic and anti-semitic activities,

unanimously adopted the following opinion at its 17th plenary session on 12 and 13 March 1997 (meeting of 12 March).

1. Introduction

1.1. The COR points out that the term 'multi-cultural` is a descriptive understanding of how things stand and involves simply examining the coexistence of various cultural references in a single country, whereas the term 'intercultural` connotes the dynamic interaction and cooperative interchange between cultures due to migratory movements, such migration may be recent or may have occurred centuries ago. In the light of this, the COR has decided to focus its considerations on the intercultural dimension of education.

1.2. The COR underlines that the development of intercultural education is of direct and fundamental concern to local and regional authorities given the fact that in many Member States, local and regional authorities have important competences in the field of education, training, youth and in the promotion of intercultural policy. It highlights the key role of local and regional authorities in disseminating and applying best practice and exchange of experiences in this field in particular through their coordination of multi-dimensional local and regional networks, involving economic and social actors from all relevant sectors (social services, housing etc.) as well as education and training establishments.

1.3. It stresses, in this respect, that local and regional authorities through their proximity to citizens, are strategically well placed to respond to the specific needs and demands of the different cultural groups within the EU and to effectively mobilize local and regional communities in promoting respect of cultural diversity, through education and training.

1.4. The COR points out that the European Union is becoming an increasingly multi-cultural, pluralistic society whose richness and diversity should be shared, respected and supported by all. It stresses that the cultural and linguistic diversity of the 18 million migrant workers and immigrants in the EU must find expression in intercultural education if we wish to aim for a united Europe and a lessening of the racial violence and xenophobia which are increasingly apparent in our societies, in particular in cities and large urban centres.

1.5. It recalls its Opinion on Kaleidoscope () which underlined that cultural diversity does not only concern the diversity of national and ethnic cultures but also social cultures and pointed out that immigrant cultures are also European cultures.

1.6. It notes the increasing multi-cultural context of education systems within the EU, beyond the total number of non-nationals in Member States' schools (estimated at around 7-9 %) the percentage of children whose everyday experience inside and outside schools is affected by contact with speakers of languages other than their own is now estimated to represent around 50 % of school children in Member States (Commission Report on the education of migrants' children). Cultural and linguistic diversity within schools is now becoming the norm, in particular in some areas of large cities, where it is in the order of 50-70 % and in some cases close to 100 %.

2. General Comments

2.1. The COR points out that intercultural education should take as its starting point the recognition of the multi-cultural nature of European society and the special value of all cultures. It should therefore constitute a principle and an approach for tackling problems and conflicts arising from this linguistic and cultural diversity. It is an approach which is opposed to all separatist or assimilationist thinking or practice.

2.2. The COR stresses that recognition on the part of education and training establishments of linguistic and cultural diversity means breaking free of the mistaken idea that the dominant linguistic and cultural view which is taught to children is the only legitimate form of communication. All pupils and students must understand that a multi-cultural society contains a variety of languages and dialects which operate in different social and cultural frameworks and that these are extremely enriching.

2.3. The COR stresses that intercultural education should not be confined to the classroom and underlines that respect for cultural difference should be an inherent principle within any lifelong learning activity from pre-school level to adult education.

2.4. The COR points out that there is a common thread running through Community programmes such as Socrates, Leonardo, Youth for Europe, INFO 2000, Kaleidoscope, Ariane and the Multiannual programme to promote the linguistic diversity of the Community in the information society, which is concerned with the promotion of intercultural education and training aspects through EU activities and it calls on the Commission to ensure that there is effective complementarity and consistency in their implementation, in particular in order to uphold a lifelong learning approach.

2.5. The COR stresses that it is also important to incorporate intercultural education within the framework of Phare and Tacis in order to strengthen the democratization process and social cohesion in the countries of central and eastern Europe. Moreover, it supports the Council of Europe's programme for local democracy embassies in former Yugoslavia, enabling the strengthening of the democratic process and the promotion of intercultural education, in particular through the Schools for Civil Society scheme within the programme.

3. Specific Comments

3.1. Combating racism and xenophobia through education and training

3.1.1. The COR points out that an intercultural approach to education and training can promote greater understanding and respect of cultural diversity, in particular in relation to cultural tradition, religious practice and history, etc. Such an approach can also guard against the risks of both cultural indifference and levelling down as well as the growth of racist and xenophobic attitudes, which encourage anti-social behaviour, violence and lead to extremist ventures.

3.1.2. The COR stresses that any initiative undertaken by the Union to increase citizens' awareness and counter racism, xenophobia and the violation of human rights must be implemented starting at pre-school level and continuing throughout all the other stages of education, so that younger generations can identify the common features which unite us despite our variety of cultures, customs and ways of living. It points out that it is vital to teach respect of human rights where children and adolescents are taught to become future European citizens and it is important to shape peoples' attitudes from an early age. However, the COR also calls for support to be given to intercultural education activities for adults since they also play a crucial role in shaping the attitudes of minors.

3.1.3. The COR welcomes Action II of the Comenius Chapter of Socrates supporting the promotion of intercultural dimension in schooling maintaining that this can help combat racism and xenophobia. It however calls for increased emphasis to be given to combating racism and xenophobia at all levels of education and training and to promote the exchange of information and experience in this area, at local and regional level.

3.1.4. The COR stresses that intercultural education has a key role to play in combating all forms of cultural prejudice and discrimination, whether on the grounds of race, colour, language, religion or a person's national social or ethnic origin and is based on the objective of eradicating such forms of discrimination and all forms of stereotypical scale of difference, in everyday educational practice.

3.1.5. It therefore maintains that it is important to avoid ethnocentric teaching and eliminate stereotypical portrayal of other cultures. The COR stresses that linguistic and cultural diversity is a source of enrichment and children should be encouraged to regard such diversity, not as a problem, but rather as something to be celebrated and enjoyed. They should be encouraged to have an awareness of other cultures and an understanding of their differences, without judging their cultures as somehow of lesser or greater value.

3.1.6. The Council in its Resolution on the response of educational systems to the problems of racism and xenophobia (October 1995) called on the Member States to promote educational and curricular innovations which contribute to the development of concepts such as peace, democracy, respect and equality between cultures, tolerance, cooperation and encourage the preparation of educational materials designed to foster attitudes and values favourable to understanding and tolerance. The COR endorses this, however, it underlines the value of exchanging information on best practice through local and regional networks on the incorporation of an intercultural dimension into curricula and materials, within Comenius, in particular concerning history, geography, and literature.

3.1.7. The COR calls on the Commission to support the preparation and production of pedagogical materials for use in schools throughout the Union which would underscore Europe's rich linguistic and cultural diversity and place it firmly in the context of a common European heritage. It particularly supports the recent intention of the Commission to develop multi-media educational material incorporating the intercultural dimension (Communication on racism and xenophobia). The COR urges that the pedagogical materials also give priority to the education of children and the training of parents.

3.1.8. The COR stresses the value of measures within Comenius supporting initial and in-service training for teachers and other educators working in a multi-cultural environment. It also welcomes the Commission' s recent intention to focus on equipping teachers with know-how and experience in counteracting racism and discrimination and its commitment to promote policies to improve the access of young people from immigrant and ethnic minority backgrounds to the teaching profession (Communication on racism and xenophobia). It points out that active recruitment measures should be tried out. Moreover, it notes that in some Member States the quota system is considered to be an appropriate way of tackling equality issues, underlining that, in accordance with the principle of subsidiarity, this is a matter for the Member States to decide and should not be imposed at pan-EU level.

3.1.9. Moreover, it endorses the Commission's actions supporting intercultural communication through the Youth for Europe III programme (involving intra-community youth exchanges, exchanges with young people from third countries and voluntary service periods) and the Youth Information Action Plan.

3.1.10. The COR strongly supports the Council's invitation to the Community and the Member States to ensure that in the field of education, appropriate cooperation in combating racism and xenophobia is achieved between the Community and international organizations, especially the Council of Europe.

3.2. Promoting integration and social cohesion through education and training:

3.2.1. The COR notes that there is a tendency in some Member States for low levels of achievement and high levels of exclusion for ethnic minority pupils. It stresses that under-achievement results from failure to provide necessary educational services and is in no way a reflection of any lack of ability of particular groups. The COR feels that more focus has to be given therefore to combating failure at school, through preventive action focusing, for instance, on young people of ethnic minority origin who could be excluded from the educational system. The COR notes that this is particularly relevant given that a large proportion of the young population of immigrants and ethnic minority origin in particular, leave studies very early, without receiving a basic education or with a poor school record. It points out that exclusion from the educational system is the first step in the process towards marginalization followed by exclusion from the employment system and, by extension, from cultural, social and civic life. It strongly endorses intercultural education to be provided as early as possible starting at pre-school level and continuing throughout people's lives, following a lifelong learning approach.

3.2.2. The COR gives emphasis to the importance of training mediators from immigrant and ethnic minority communities as well as public employees who work with these communities. The example of projects supporting the training of Gypsy mediators through the Socrates programme is seen as a positive development. Mediators can help establish channels of communication between the school and community and improve contact and collaboration with immigrant families which were considered as important priorities in the recommendations put forward in the DIECEC report. (Development of Intercultural Education by Cooperation between European Cities).

3.2.3. The COR underlines the need to train teachers to meet the special needs of children of immigrant and ethnic minorities. It welcomes the Commission's intention to support inclusion in all initial training curricula of courses aiming to make teachers sensitive to the specific strategies required for successful teaching in multi-cultural and multi-lingual settings, specifically through Action 2 and 3 concerning initial and in-service training of Comenius (Report on the education of migrants' children in the European Union).

3.2.4. The COR points out that cooperation between teachers and parents as well as mediators could grant effective support to children's adaptation to the school environment, whilst respecting the specific needs of ethnic communities. It stresses that this could help motivate ethnic minorities to become more involved in educating themselves. It therefore calls for support to be given to teacher/parent associations in order to promote dialogue and for the EU to support the dissemination of good practice on parental involvement in education and training.

3.2.5. The Comenius Chapter supports the integration of children into educational systems. Projects aim to improve school attendance levels and the quality of education received as well as meet the children's specific educational needs and capacities. Projects concern:

i) the education of children of migrant workers (including children of third country nationals; accounting 7-9 % of school population): actions support the teaching the language of the host country and language and cultures of country of origin. Given the increase in mobility of nationals between Member States the COR calls for this measure to be given increased support;

ii) the education of children of travellers and Gypsies (2 million Gypsies live within the EU and over half are estimated to be of school age, but only 30-40 % of Gypsy children attend school with any regularity): actions focus on primary and secondary education, training for Gypsy mediators and open and distance learning, amongst other matters;

iii) the education of children of occupational travellers (children of 600 000 EU citizens): projects concentrate on the use of open and distance learning, school networks, information and guidance for parents and transfrontier regional cooperation, amongst other matters.

3.2.6. Action 2 of the Comenius Chapter also supports projects aimed at promoting the intercultural dimension in schooling (as mentioned in point 3.1.3) and the introduction of innovative pedagogical practices through activities involving comparative studies of cultures, facilitating the development of intercultural dialogue and understanding of cultural differences. The COR points out that though linguistic skills are vitally important for increasing mobility and with it job opportunities, awareness and respect for the culture of the host nation are crucial ingredients in improving the mobility of EU citizens and that therefore actions under this heading will also help achieve this goal.

3.2.7. The COR therefore welcomes these areas of action within Socrates, which concern school education and also welcomes measures concerning the training of people from ethnic minorities under the Leonardo programme. Moreover, the COR welcomes the new Employment-inclusion strand of the Social Fund Community initiatives which concerns improving access to the labour market and employability of immigrants, ethnic minorities and refugees. It welcomes in particular the inclusion of travelling and Roma communities within its scope. Moreover, the COR supports the bottom-up approach of its implementation.

3.2.8. However, it underlines the need for greater complementarity between these programmes and stresses that all levels of education including pre-school, out-of-school activities and adult education should include an intercultural education component, following a lifelong learning approach. It maintains that this can help promote integration and social cohesion and calls on the EU to give support to actions in these areas. The COR, moreover stresses the importance of supporting and exchanging information at local and regional level within this field.

3.2.9. The COR underlines the value of out-of-school activities (arts, sports activities and youth club activities) and of alternative adult education in facilitating integration and combating exclusion. It stresses the need to promote the participation of adult immigrants, in particular young adults and women, in education and training activities and the importance of alternative adult education in enabling not only the development of skills but self-development and participation in social and civic life.

3.2.10. The COR stresses the need to consider linguistic problems when addressing the issue of underachievement. The rapid growth of immigration leads to an increasing number of pupils for whom the host language is not their mother tongue. The COR endorses the recommendations put forward in the DIECEC project advocating language support courses or supervised instruction that minimize content loss in normal classes.

3.2.11. The COR notes that the Council Directive of 1977 on education of the children of migrant workers requires Member States to provide children of EU migrant workers with free tuition to facilitate initial reception adapted to their needs in the language of the host country. It also requires Member States to take appropriate measures with the support of the children's countries of origin to promote teaching of their mother tongue. The Member States committed themselves to extending these provisions wherever possible to the children of migrant workers of non EU nationals.

3.2.12. With regard to the education of children of third country origin, the COR stresses the need for an understanding not only of the language of their host country but also of the language, culture and heritage of their home country or country of origin. It points out that this is particularly relevant for second and third generations should they wish to return to their home country. It underlines that in any event, the preservation of their cultural roots and heritage are important stabilizing factors and important on a psychological level as well as contributing even further to the richness of cultural diversity in the EU.

3.2.13. The COR stresses the importance of language learning. It enables dialogue between cultures and thus eliminates prejudices. The COR underlines that multi-linguism is an important feature of a multi-cultural society.

3.2.14. It underlines the important role of educational establishments in offering appropriate training and helping to establish a firm place for all mother tongues of EU citizens in the development of the global information society and stresses the need to ensure that the information society remains multi-lingual in order to safeguard linguistic diversity, as pointed out in its Opinion on the Multi-lingual information society ().

3.2.15. The COR welcomes the Lingua programme of Socrates, which promotes the intercultural dimension of education, by supporting language learning in the languages of the EU in particular those which are least widely used and least taught (interacting with actions under the Leonardo programme).

3.2.16. However, the COR calls for support to also be given to the teaching of lesser-used minority or regional languages which, although it is concerned with an intercultural approach, forms part of a separate issue warranting special attention. In this regard, it recalls its Opinion on the multi-lingual information society which called for provisions of the European Charter of regional or minority languages to be respected so as to guarantee the rights of citizens who speak other languages. It maintains in this respect that the Commission's proposal to raise proficiency in three Community languages as put forward in its White Paper on education and training is restrictive.

3.3. Local and regional experiences in supporting intercultural education and the adaptation of education systems

3.3.1. The COR strongly supports the Council's call, inviting Member States to encourage initiatives to combat racism and xenophobia promoting cooperation between schools and their local communities (Council meeting of 23 October 1995) but stresses the key role and responsibility of local and regional authorities in supporting and coordinating cooperation and partnerships at local and regional level.

3.3.2. The COR calls for increased support for transnational networks and cooperation projects, in particular at local and regional level, such as:

i) cities anti-racism project: concerned with supporting local partnerships aiming to promote local democracy and a culture of responsible citizenship in multicultural urban contexts;

ii) the Cities' Intercultural Education Network: dealing with the educational challenges in the 'difficult districts` of multi-cultural cities and aiming to address a range of issues of quality improvement in their schools and in particular the DIECEC project (Development of Intercultural Education by Cooperation between European Cities) concerned with helping cities cooperate in the development of a common base of experience in how cities meet the challenges of large minority populations for whom the national language is not the first language;

iii) ELAINE (European Local Authorities Interactive Network for Ethnic Minorities Policies): exchanging experience and information on effective approaches to the integration of immigrants and ethnic minorities;

iv) twinning projects: these have a fundamental role to play in promoting greater understanding of cultural diversity and in strengthening intercultural cooperation.

3.3.3. It notes that the level and quantity of intercultural education actually available in schools, colleges and universities, within the EU, are limited. Where these have not already taken place, there is great need for actions and programmes which seek to promote and encourage the development of work in this area. The COR particularly underlines the need for targeted funding to support innovative pilot projects, in this field in particular at local and regional level, which could eventually become part of mainstream education and training methodology.

3.3.4. It points out that the long-standing and evolved experiences of dealing with children of third country origin in some Member States who have had a long tradition in dealing with citizens who originate from third countries, can be disseminated and built upon for the benefit of other countries across the EU.

3.3.5. It stresses that the educational facilities of local and regional authorities are important resources in the promotion of intercultural education in particular through exhibitions, sports activities, the arts including concerts, dance programmes, etc. It adds that other public buildings and facilities also have a role to play. They range from town and city halls to village halls, libraries and community centres; facilities run in neighbourhoods by both professionals and volunteers and a whole range of adult education establishments. It underlines that all of these could be mobilized in this task.

4. Conclusion

4.1. The COR highlights the key role of intercultural education in eradicating racist and xenophobic attitudes in society and therefore tackling social tensions and anti-social/violent behaviour. It also points out that intercultural education has an important enabling function: promoting the integration in society of all its citizens regardless of their cultural background, in particular by supporting their participation in the education and training systems, the labour market as well as in social and civic life. The COR underlines that an intercultural education approach is vital not only in order to promote social cohesion within the EU but also in order to support the democratization process within the CEEC.

4.2. The COR underlines that the purpose of its recommendations for intercultural education is to highlight the need for a comprehensive mobilization and cooperation at national, regional or local level between Member States, involving the social partners, education and training establishments, NGOs, youth sports and cultural organizations as well as local and regional authorities in order to contribute towards the development of quality intercultural education and to encourage and support the creation of the conditions and means required for broader and deeper cultural awareness and understanding between citizens.

4.3. In this respect, it calls for greater complementarity between EU programmes and instruments supporting intercultural education, in particular Socrates and Leonardo and it calls on the EU to give greater support to pre-school, out-of-school and adult education activities in this field, following a lifelong learning approach. The COR also calls for opportunities for initial and in-service training for teachers/trainers in the field of intercultural education to be reinforced within EU programmes. Moreover, it stresses the need for support to be given to increasing cooperation between teachers and parents from immigrant and ethnic minority groups, in order to facilitate children's adaptation to the school environment.

4.4. The COR commends the dissemination of best practice and experiences in the field of intercultural education between the Member States of the EU, in particular at local and regional level. It also emphasizes the value of extending these cooperation networks to the central and eastern European countries.

4.5. The COR concludes that, ultimately, true social cohesion can only be achieved when all citizens are committed to genuine mutual respect and peaceful co-existence within a multi-cultural participatory democratic society and underlines the fundamental role of intercultural education in supporting this important objective.

Brussels, 12 March 1997.

The Chairman of the Committee of the Regions

Pasqual MARAGALL i MIRA

() OJ No C 337, 11. 11. 1996, p. 63.

() OJ No C 100, 2. 3. 1996, p. 30.

() OJ No C 337, 11. 11. 1996, p. 45.