COMMISSION OF THE EUROPEAN COMMUNITIES 
COM(94) 602 final 
Brussels, 15.12.1994 
COMMUNICATION FROM THE COMMISSION 
Lesser Used Languages 
of the 
European Union 
Report of Activities 
1989-1993 

GONTENTS 
1. Introduction 
1.1 Europe's Languages 
1.2 The European Link 
1.3 Initiatives in the European Parliament 
1.4 Budget Line 
1.5 Maastricht Treaty 
1.6 EU Education Policy 
1.7 EU Cultural Policy 
1.8 European Charter 
1.9 Minority Rights 
2. Commission Activités 
2.1 MEuromosaicH Study 
2.2 Reports on Activités Funded by the Commission 
2.3 Projects 1989-93 
a. Research 
b. Education 
c. Conferences 
d Festivals and cultural events 
e. Media projects 
f. Information 
g. Study visits 
h. European Bureau for Lesser Used Languages 
3. Conclusion 
3.1 A Changing Environment 
3.2 Treaty on European Union 
3.3 Activities financed by the Commission 
3.4 Recommendations 
(2) A 

INTRODUCTION 
1.1 Europe's Languages 
In addition to the official languages of Member States spoken in the European Union, up to 
40 million European citizens according to some estimates speak minority or regional 
languages traditionally used in their territory. For example, Catalan is spoken by some seven 
million people in Spain, France and Italy (Alghero on Sardinia). Other European languages 
spoken in the EU include Basque (E> F), Breton (F), Corsican (F), Frisian (NL), Friulan (I), 
Galician (E), Occitan (F), Ladin (I), Sard (I), Sorbian (D), and Welsh (UK), among others. 
Irish and Létzebuergesch may be added to this list of lesser used European languages despite 
their status at the level of their respective Member States. 
A further category of linguistic communities in a similar position to speakers of minority 
languages are those who speak the official or majority language of a neighbouring State, but 
who live in a country where another language predominates. German speakers in Belgium, 
Denmark, France and Italy are in this position; as are Albanian, Croat, Greek and Slovene 
speaking communities historically domiciled in Italy. While these languages are not 
themselves likely to decline, on account of their official status elsewhere, the language and 
associated cultural heritage of these regions and territories are subject to similar pressures as 
those of the lesser used languages. In total, over 40 autochthonous regional or minority 
language communities have been identified. 
As well as the territorial languages described above, Gypsy and Yiddish languages, which 
have been traditionally spoken throughout Europe, are included 
1.2 The European Link 
Although the precise status and position of the linguistic communities vary enormously, there 
are a number of common interests and factors which bring together many of these groups 
across the Union. Some communities have links across Member State borders, such as 
Basque speakers in Spain and France; others have traditional cultural and historical ties, such 
as the Celtic language groups in France, Ireland and the UK. While these links are 
undoubtedly important and may continue to be promoted at the inter-regional level, nearly all 
of the lesser used language communities have in common a range of deeper interests both in 
relation to the continued development of their languages and also concerning the realisation 
of their potential within the European Union. 
Many of the language communities face common difficulties: many are located in rural areas, 
often in peripheral regions, where local economic prospects are a cause for concern; 
communities may have to cope with a decline in the use of a language, in part due to the 
increasing influence of a dominant language spoken in their midst. However, the situation 
1 ^0 
is not always negative: some of the languages have strengthened in recent years where 
citizens have shown a renewed determination to use and promote their language and, in 
particular, to pass on their unique cultural heritage to their children. 
The European dimension to minority languages was recognised and promoted in the first 
instance by the European Parliament, which has sought to encourage their use in a variety of 
domains. Since 1983, the Parliament has secured a modest provision in the budget for 
projects designed to preserve and promote lesser used languages. This is administered by the 
Commission and has been used, in particular, to establish cross-border or pan-European 
contacts and to encourage the exchange of experience between linguistic communities. 
The entry into force of the Maastricht Treaty in 1993 marks a new phase in the development 
of Europe, particularly in relation to the relevance of the Union to the citizen. The Treaty 
specifically underlines the importance of the diversity of European cultures and enshrines into 
law the principle that decisions should be taken as closely as possible to the citizen. 
The unification of Germany in October 1990 brought an additional linguistic community, the 
Sorb speakers of Lusatia, into the EU. 
1.3 Initiatives in the European Parliament 
The impetus for action in this field has come from the European Parliament, which has passed 
a series of motions and resolutions since 1979 calling for measures to be taken to benefit 
regional or minority language communities1. A further report and draft resolution2 was 
undertaken within the Committee on Culture, Youth, Education and the Media which 
appointed Mr Killilea MEP as rapporteur. This report has been drawn up in the light of the 
Council of Europe's Charter for Regiond or Minority Langucges, and it includes a synopsis 
of the current position of linguistic minorities in the EU which was compiled following a 
survey of public authorities undertaken by the rapporteur. 
At the same time, a report and draft resolution on the Protection of the Rights of Ethnic 
Groups*, which contains a draft Charter, was drawn up by Mr Von Stauffenberg MEP, acting 
as rapporteur in the Committee on Legal Affairs and Citizen's Rights. It was subsequently 
taken over by Mr Alber MEP, but again the Parliament has yet to vote in plenary on the draft 
1 FoHovMng motions passed in 1979 and 1980, the EP voted three resdutions: Resolution on a Qxrnunity charter of reg^ 
languages and cultures and on a charter of rights of ethnic minorities (Arte I, 16x1981). OJ No. C 287, 9.xi.1981; 
Resolution on measures in favour of minority languages and cultures (Arte II, 11.ii.1983), OJ No. C 68,14.iii.1983, p103; 
Resolution on the languages and cultures of regional and ethnic rrinorities in the EijropeanQ^ 
OJNO.C318,30.XL1987. 
2 PE201.963/RE1 
3 PE 204.838 
Resolution. The draft Charter includes provisions on the right to use an ethnic language4 and 
education in the ethnic language3. 
The Paiiomentory Intergroiq? on Minority Languages has continued to meet during plenary 
sessions to discuss the key issues of the Alber Report, the Killilea Report, the European 
Charter for Regional or Minority Languages, and provision for lesser used languages in the 
budget 
1.4 Budget Line 
The budget line in favour of actions to promote or support the less widespread languages and 
cultures of the Union has been included a result of continued support in the European 
Parliament The amounts have risen from 100.000 ecu in 1983 to 3.500.000 ecu in 1994 as 
shown in the table below. 
year 1 83 1 01 84 
02 85 
0.34 86 
0.68 87 
0.86 88 
1.0 89 
1.0 90 
1.1 91 
2.0 92 
2.5 93 
3.5 94 
3.5 
mecu 
In spite of the increases, the total of 3.5 mecu in 1993 and 1994 remains modest, and demand 
continues to outstrip the funds available: the number of applications for grants has risen to 
the extent that by 1993 the Commission was able to approve over 180 projects. 
1.5. Maastricht Treaty 
The Maastricht Treaty on European Union6, which will affect almost every Union activity, 
is likely to influence action taken in relation to minority languages. The Treaty extends the 
competence of the Union to cover culture7 and includes an article on education8 which makes 
reference to the need to promote the learning of languages. The Maastricht Treaty also 
underlines the importance for the European Union to assure the continued diversity of 
4 Artjde9 
9 Article 10 
6 Treaty on European Union, signed 7.U.1992, entered into force 1 jd.1993. 
7 Article 128 
•Article 126 
3 
European cultures9. This principle is reinforced by thé rule on subsidiarity which is written 
into the Treaty10 and which applies to all Cbmrnunity activity where competence is shared 
between the Community and the Member States.11 
1.6 EU Education Policy 
Turning to the internal policies of the European Union, several practical measures have been 
taken in the area of minority languages and cultures. The Council and the Mbnisters of 
Education have made provision for educational projects benefitting migrant workers' children, 
including those from outside the Union12. In particular, attention is given to teaching children 
their mother tongue and culture. These initiatives were supplemented in 1989 with a 
Resolution on School Provision for Gypsy and Traveller Children13 which has led to projects 
including the production of didactic materials in Gypsy languages. 
Also in 1989, the Lingua Programme™ was established with the aim of rjrornoting the teaching 
of foreign languages for international communication. The languages within Lingua are the 
working languages of the EU15 and Irish (which is both the first official language of Ireland 
and an EU Treaty language), and Lëtzebuergesch, which is referred to in the lingua Decision 
as "a language spoken throughout the territory of Luxembourg"16. These two languages were 
included within Lingua on account of their official status at the level of the respective 
Member States; no other lesser used language is included 
Under the Erasmus higher education programme, while no specific provision is made for 
lesser used languages, a number of relevant projects and networks have been set up, for 
example in the areas of Catalan and Welsh studies. Building on these developments in the 
educational domain, the Socrates education programme, which will supersede both Lingua and 
Erasmus, leaves the way open to include minority language projects in appropriate cases. 
9 Article 128 
10 Articles A and 3b 
11 For further discussion of the Maastricht Treaty, see Chapter 3: Conclusion 
12 Resolution comprising an action programme in the field of education, OJ No C 34,14. ii. 1976; Resolution comprising an 
action programme in favour of migrant workers and members of their families, OJ No C 38,19.ii.1976; Declaration of 
1.H.1978, R/1832 f/77 (SOC 173) 
13 Resolution of 22.V.1989, Official Journal, 89/C 153/02, pp81-32 
14 Council Decision of 28.vi. 1989, Establishing a Programme to Promote Foreign Language Competence in the European 
Community (Lingua), 89/489/EEC, Official Journal, 19.8.89, No L 239/24-32 
15 Danish, German, English, Spanish, French, Greek, Italian, Dutch, Portuguese. (Five of these languages are spoken by 
autochthonous minority communities in certain Member States: Danish-D, German-Dk,B,F,l; French-I; Greek-I, Dutch-F.) 
18 Lingua Decision, ibid, preamble, 11th Wwreas clause. 
4 
1.7 EU Cultural Policy 
In the cultural field, the Council and the Ministers for Culture meeting in 1992 considered a 
Commission communication on prospects for action in the cultural sphere and underlined that 
Union action should respect national and regional diversity17. In particular, the Council and 
the Ministers took note of Union support for translation, especially translations from European 
languages which are less frequently used The Economic and Social Committee, commenting 
on the same Commission communication, also underlined the need to respect the national, 
regional and local characteristics of cultural actions18. 
For the European Parliament's response to the Commission communication, a report was 
prepared by Mr Barzanti MEP, in the Committee on Culture, Youth, Education and the 
Media19. The Barzanti report re-iterated the importance of diversity and, with reference to 
European pluralism, underlined the need to defend less widely used languages. This point 
was also highlighted in the context of aid for translations. 
In 1991, prior to the Barzanti Report, the Parliament had addressed the need to promote the 
theatre in the Union in a Resolution which expressly mentioned the desirability of granting 
aid to wH's by representatives of cultural minorities20. 
1.8 European Charier 
Within Europe as a whole, the foremost development in recent years has been the adoption 
in 1992 by the Council of Europe of the European Charter for Regional or Minority 
Languages21. This document sets out objectives for signatory States in relation to language 
encouragement and promotion, covering a range of domains of language use. The following 
summary appeared in Contact-Bulletin11: 
"The charter is a comprehensive document Part II deals with objectives and 
principles. All states signing the convention must accept Part IL Part HT 
relates to measures to promote the use of regional or minority languages in 
public life. It deals in some considerable detail with education, judicial 
authorities, administrative authorities and public services, media, cultural 
17 Conclusions of the Council and the Ministers for Culture meeting wflhin the Council on guidelines for Community cultural 
action (COM(92)149), Bufl.EC 11-1992,1.3.245. 
» Economic and Social Committee Opinion, 22x1992, Bull.EC 10-1992,1.3.186. 
19 Barzanti Report, European Parliament, Comrrittee on Culture, Youth, Education and the Media, PE201.819, Resolution 
passed 21.i. 1993, on the Commission communication 'New prospects for Community cultural action', COM(92)149. 
20 Parliament resolution on the promotion of the theatre and music in the EC, 25x1991, BulLEC 10-1991,1.2199. 
21 Council of Europe, European Treaty Series 148, Strasbourg 5x1992, ISBN 92 871 2210 5 
72 Vol.9, no.2, Autumn 1992, Contact-Bulletin, a periodical published by the European Bureau for Lasser Used Languages, 
Dublin (editions in DE, EN, FR IT). 
activities and facilities, economic and social life, and trans-frontier exchanges. 
Attempting, as it does, to cover a wide range of quite different language 
situations, the text of the convention offers a number of options to the 
contracting parties. In respect of each language specified at the time of 
ratification, the contracting state will undertake to apply a minimum of 35 
paragraphs or sub-paragraphs [out of almost 100] from Part DT of the 
convention. These must include at least three each from the articles which 
relate to education and cultural activities and facilities." 
By June 1994, 13 states had signed the Charter, including five member states 
of the European Union, and one country, Norway, had lodged its instrument of 
ratification with the Council of Europe. 
1.9 Mnority Rights 
There has been an important series of developments in relation to human rights 
which have a bearing on minority languages and cultures. In the United 
Nations, the General Assembly adopted the Declaration on the Rights of 
Persons Belonging to National, Ethnic, Religious and Linguistic Minorities23 in 
1992. In addition to reasserting the basic human rights of minorities, such as 
the right to equal treatment and freedom from discrimination, the Declaration 
requires States to take measures to promote, inter alia, language teaching, 
cultural expression and educational provision24. States are also encouraged to 
cooperate and exchange information and experiences in dealing with minority 
issues25. 
The changes in central and eastern Europe in the 1990s and the growth in 
ethnic tension, which has led to war and conflict in a few of the former 
comrnunist states, have focussed attention on the need to defend the basic 
human rights of minorities, including linguistic minorities. A lead was taken 
by the Conference on Security and Cooperation in Europe (CSCE) in 1990 
when the heads of State or Government adopted the Charter of Paris for a New 
Europe26 which specifically provides that cultural and linguistic minorities 
should be protected without Âscrinânation and in full equality before the law. 
In addition, the Charter requires that conditions for the promotion of linguistic 
identity should be created At the Uixembourg European Council in 1991, the 
EU heads of State or Government issued a Declaration on Human Rights27 
25 Resolution 47/135 of 18 December 1992 
24 ibid. Article 4. 
25 ibid. Article 6. 
" CSCE, Paris, 21.xi.1990, signed by the heads of State or Government and the President of the Conmission. 
27 Luxembourg European Council, 28-29.vi.1991, Annex V Declaration of Human Rights, BuB. EC 6-1991, page 18. 
6 
which laid down that the protection of minorities was a precondition for 
democracy and underlined the importance of respect for cultural identity and 
the need to uphold the rights of members of minorities. This was put into 
practice in 1992, when the Council detenrrined28 that an article containing an 
explicit reference to respect for democratic principles and human rights should 
be included in the Europe Agreements being negotiated with Romania and 
Bulgaria29. Inclusion of an article to this effect, which is of course as binding 
on the EU as it is on the third State, is now standard practice for the 
negotiation of all trade and cooperation and association agreements with third 
countries. 
The Union and Member States have taken the orjportunity in other fora to 
reaffirm their œmmitment to the rights of minorities, including linguistic 
minority communities30. Most recently, in Vienna in October 1993, the Council 
of Europe convened its first Summit of all the 32 heads of State or Government 
in order to agree the (October) Vienna Declaration31 on Human Rights which 
contains a Protocol on National Minorities. This requires the States to allow 
members of national minorities to develop their culture, religion, traditions and 
customs, and to use their language in private and public. The agreement also 
provides that, subject to certain conditions, members of national minorities 
should be able to use their language in communication with public authorities. 
The Commission, which was represented at the summit, fiilly supported the 
Vienna Declaration and underlined its desire to create closer links between the 
EU and the Council of Europe, leading to the eventual accession of the EU to 
the wider European body32. 
The European Parliament has also been active in the area of provision for 
minority groups in the context of the human rights debate33. 
28 Council Statement, 11.iv.1992, BulI.EC 5-1992, 1.212-13. 
29 Article 6 of the Europe Agreement for Romania (proposed 21 .xii.92) reads: Respect for the democratic principles and 
human rights established by the Helsinki Final Act and the Charter of Paris for a new Europe, as well as the principles 
of market economy, inspire the domestic and external policies of the Parties and constitute essential elements of the 
present association. Article 6 of the proposed Agreement with Bulgaria is in similar (though not identical) terms 
30 Eg Declaration on Human Rights, Democracy and Development, Council and Member States, May 1993, Bull. EC 5-1993, 
1.3.41; EPC preparations for Second UNVXbrid Conference on Human Rights, Vienna, 14-25.vi.1993: the(June) Vienna 
Declaration and Action Programme, June 1993, covers the situation of minorities and indigenous peoples 
31 Vienna Declaration, Council of Europe Summit, 9.x 1993, SUM(93)2 
32 Intervention by Hans van den Broek, Commissioner for External Political Relations, at the Council of Europe summit 8-
9.x. 1993, Vienna. 
33 E g. EP Resolution on human rights, 9. vii. 1991, which called for the Union to ensure respect for human rights both outside 
the EC and within the Member States; EP Resolution on human rights, 12.ix.1991, OJ C 24016.9.1991, which inter alia. 
called for a European bill of rights and for the Commission to be given a mandate to negotiate Union accession to the 
European Convention on Human Rights; EP Resolution on respect for human rights in the EC, 11.iii.1993, OJ C 115 
26.4.1993. See also AJber Report above. 
(3) 
2. COMMISSION ACTIVITIES 
In 1992-93 the European Commission's Task Force for Human Resources, 
Education, Training and Youth, which funds activities relating to minority 
languges and cultures, needed to take stock of the direction of policy in this 
area Two matters required immediate attention. Firstly, much of the data 
relating to lesser used language communities is unreliable and better 
comparative information is needed concerning the social, economic, educational 
and linguistic situation of these communities. Secondly, a summary and 
assessment of the activities funded by the Commission over the four years 
1989-1993, which had been requested by the European Parliament, was needed 
21 ffEuromosaicM Study 
The first objective was to update information and data relating to the languages. 
In 1984 the Commission had published a major study on the condition of the 
lesser used languages, entitled The Linguistic Minorities in Countries Belonging 
to the European Community*4 and this was followed up in 1990 by publication 
of a survey35 of the position of linguistic minorities in the three more recently 
joined Member States, Greece, Spain, and Portugal. 
However, after ten years had elapsed since the original data had been gathered, 
a further study was clearly needed Information was required both on the basic 
data relating to the number of speakers and the use of the languages in various 
domains (home, school, work, public administration, commerce, media and 
cultural activities, etc.), and to assess the sorio-linguistic vitality of a language, 
that is whether the language or linguistic community is in a state of decline, 
revival or stability. In addition, the study would need to look at factors which 
influence the growth or decline of the languages, such as their perceived status; 
socio-economic factors; degree of urbanisation and peripheralisation; and the 
consequences of interaction or contact between two languages. 
Following a call for tender36, the contract was awarded to a consortium of 
experts in linguistics and socio-linguistics representing four of the leading 
European institutes in this area: Fédération des Foyers Ruraux, Paris; Institut 
35 Summary Report, Instituto della Enddopedia Italiana, Roma; Office for Offidal Publications of the European Communities, 
Luxembourg, 1990, ISBN (EN) 92-825-5850-9; (FR) 92-8256480; (IT) 92-825-5851. 
linguistic Minorities In the European Economic Community: Spain, Portugal, Greece, Summary of the Report, Miquel 
Siguan, University of Barcelona; Office for Official Publications of the European Communities, Luxembourg (1990), ISBN 
(EN) 92-826-0375-X; (FR) 92-826-0376-1; (ES) 92-826-0376-8. 
O.J. No C 291/9, 7.xi.92 
Sociolinguistica Catcdana, Barcelona; Onderzoekscentrum Meertdigheid, 
Brussel; and Research Centre Wales, Bangor, who came together under the title 
Euromoscdc. 
The researchers are in the process of collating data from official sources, 
publications, studies, consultations with experts, and interviews with coirimunity 
leaders. A series of highly detailed questionnaires have been devised and 
translated with a view to securing comparable data across the EU. In addition, 
a limited number of empirical surveys are being undertaken in selected regions. 
The report is planned to be completed in the first half of 1994 and the 
conclusions will include policy recommendations to continue to promote 
European linguistic diversity. 
2.2 Reports on Activities Funded by the Commission 
The Commission has managed the annual budget line37 in favour of less 
widespread languages and cultures indigenous to the European Union since 
1983. In 1990 a report which covered the period 1983-1989, published38 by 
the European Bureau for Lesser Used Languages39, contained a number of 
recoirjmendations, some of which have since been acted upon. In particular, the 
Commission has increased its support for projects in the areas of education, 
information networking, the media and cultural events. In addition, the 
development of the European Bureau has continued to receive Commission 
support and an information office has been established in Brussels. 
The report also contained a number of general observations on the potential to 
include action in favour of minority languages within other policies, namely 
education, training, information, culture, regional development, agriculture, and 
fisheries. In some respects this has occurred; particularly in the cultural field; 
and in so far as policies, such as the Common Agricultural Policy, contribute 
to the economic well-being of regional communities, they will help to underpin 
the security of the linguistic groups. However, specific policy initiatives need 
coherent aims and must be based on sound data, a needs analysis, consultation, 
and a proper assessment of costs and benefits. The institution of parallel 
programmes for linguistic minorities may not be effective and a more 'organic' 
approach whereby projects are funded on merit within general programmes, as 
is the case within Erasmus, may be the most appropriate way forward In 
37 Budget line B3.1006; managed by the European Commission's Task Force for Human Resources, Education, Training 
and Youth 
38 Community Activity in Favour of Lesser Used Languages and Cultures 1983-1989, Lucien Jacoby, European Bureau for 
Lesser Used Languages, Dublin, (1990); (DE; EN; FR IT) ISBN 1 870675 04 5 
39 The European Bureau for Lesser Used Languages is an independent body registered as a company in Ireland. 
9 
approach whereby projects are funded on merit within general programmes, as 
is the case within Erasmus, may be the most appropriate way forward In 
addition, since the Bureau's report was written, the Maastricht Treaty has 
entered into force and new Commission initiatives must have regard to the 
principle of subsidiarity. 
The report laid considerable emphasis on the desirabihty of supporting multi-
annual projects. However, there remains a technical difficulty here in that, 
since the budget for lesser used languages is voted each year by the Parliament 
and by the Council, and therefore there is the possibihty that the budget may 
not be renewed, the Commission is prevented in law from agreeing to finance 
projects for more than a year at a time. Of course, the Commission may 
finance one year's project in the anticipation that the project will continue for 
several years, but it would be irresponsible to give project organisers the 
impression that funding œmmitments were assured for subsequent years. As 
long as the legal base for action in this area remains the annual budget, the 12-
month rule will continue to apply. 
13 Projects 1989-1993 
Piie Commission has supported projects in the fields of research, bilingual 
education, conferences, festivals and cultural events, media projects, the 
Mercator irrformation network, publicity initiatives, study visits, and the 
activities of the European Bureau for Lesser Used Languages. 
Tne budget during this period has risen from 1 rrilhon ecu to 3.5 million ecu. 
Despite the increase, the total remains very low - statistically zero in terms of 
the budget of the European Union - and the range and type of projects funded 
is correspondingly limited However, the EU has made useful contributions to 
initiatives within linguistic communities, and it is recognised in many minority 
language regions for work which has been supported Above all, the EU has 
promoted the more significant of the pan-European projects and hence 
contributed to the European perspective of the cxjmmunities affected 
(a) Research 
Over twenty projects, including the Euromoscdc study and the Mercator network 
(see below) were supported by the Commission in the period 1989-93. These 
directly affected thirteen linguistic communities, while some projects were of 
general application and a number consisted of comparative studies between 
10 
regions with a view to seeing how experience could be transferred The 
research work divides into four categories. 
a socio-economic and linguistic studies; 
b. language policy; 
c. socio-cultural studies; 
d education. 
In addition to Euromosdc and Mercator, two projects are of particular note. 
One is an innovative project to link linguistics research institutes which are 
engaged long-term in language use censuses in four language regions: Basque, 
Irish, Frisian, and Welsh The aim of the network is to share expertise and to 
seek to standardise the methodology and questionnaires used in research, and 
thereby be able to produce œmparable data. The second was a project to 
investigate the development of the European dimension in education in the 
context of lesser-used languages which resulted in the pubUcation in 1993 of 
a report, Citizenship 2000. 
(b) Education 
Education remains the foremost area of activity supported by the Commission. 
During the period 1989-93 there have been a number of new initiatives in 
schools and a strengthening of existing projects. In particular, the continued 
efforts by linguistic immunities to promote bilingualism among young 
children have shown considerable success. There is now a large corpus of 
experience in this field, notably in regions speaking Basque, Breton, Catalan, 
Frisian, Irish, and Welsh as well as in the German-speaking minority 
communities. In Alsace in 1993 a major regional initiative was launched to 
promote bilingualism in French and German (both Alsacien and standard 
German). This marks one of the more significant developments in European 
education in recent years and the progress of the plan will be followed with 
interest A press conference and presentation, co-sponsored by the Regional 
Government of Alsace and the European Bureau for Lesser Used Languages, 
was held in the European Partiament40. At this event the Bureau gave its 
Brussels launch to an illustrated promotional booklet41 on bilingual education, 
aimed at parents, which sets out the rationale behind bilingualism. The booklet 
deals with the issues relating to bilingualism in an accessible and non-
doctrinaire way and also introduces readers to some of the underlying theories 
and results of research into bilingual education. 
One of the seminal conclusions of research into the abilities of bilingual 
European Parliament, Brussels, 21 .ix. 1993 
The Sound of Europe, Living Languages 1, S.W. Siencyn, European Bureau for Lesser Used Languages, Dublin, 1993, 
40pp, ISBN (EN) 90-74851-01-0, (FR) 90-74851-02-9 
11 
children, and one which has been known for some time, is that they perform 
consistently better than monolingual children in data assessment and data 
manipulation, and in creative and lateral thinking. These are exactly the type 
of 'problem-solving' skills which have been identified by human resources 
experts as being required of the current and future workforce in the European 
Union if it is to retain its economic position in the world This point was 
repeatedly underlined in the public debate leading up to the Commission 
President's 1993 White Paper, Competitivity, Growth and Employment*1. The 
acquisition of these skills is not dependent on young children learning any 
particular languages and is applicable to bilingual children one of whose 
languages is a minority tongue. A great deal of the research in Europe in this 
area has been undertaken with bilingual children who speak a minority 
language. In this respect, one of the few natural advantages which speakers of 
regional languages may be able to exploit is the inherent motivation within their 
communities to acquire two mother tongues. 
The Commission has contributed to a wide range of innovative projects in the 
educational domain across the Union. In particular, six communities have 
benefitted from highly successful pre-school bilingual education projects. At 
school level, support has been given to both pimary and secondary level and 
teacher-ti*aining initiatives across the Union. In one project in France a school 
undertook an initiative to teach passive language skills in six related languages, 
including Occitan and Catalan. It is worth noting that initiatives which contain 
a strong publicity element and actively involve parents and the local ccmmunity 
are often extremely successful. 
Among educational projects at the adult level, the community-based language 
strategies should be fiighlighted These consist of a range of complementary 
language initiatives in local schools, businesses, places of work and worship, 
etc. are undertaken at the same time. 
The provision of good teaching materials is one of the most pressing needs for 
teachers in minority languages. In language classes themselves, teachers ask 
for materials which reflect modem teaching methodology, and there remains a 
dearth of materials for teaching other subjects such as Science and Geography 
through the medium of the languages. For this reason the production of 
teaching materials, which include students books, teacher's guides, and cassettes 
as well as multi-media materials using audio-visual and information technology, 
remained a priority category for funding under the less widespread languages 
budget during 1989-93. Projects designed for the Basque and Breton education 
systems were especially noteworthy 
The Commission has continued to lend moderate support to the research and 
pubUcation of a range of dictionaries, both for long-term academic projects 
42 Presented to the European Council, 10-11 December 1993 
12 
intended to assist the standardisation of language and for the production of 
dictionaries intended for everyday use. 
(c) Conferences 
The Commission has continued to support conferences and meetings between 
experts and others working in a range of fields which have a bearing on lesser 
used languages. In many cases, conferences provide an effective way of 
transferring expertise between linguistic communities. In recent years there has 
been an increase in interest in the economic issues affecting the lesser used 
language communities and this has been reflected in the funding rjrogramme 
from the Commission. 
Among the more significant conferences funded by the Commission were the 
Athens conference on minorities, which was held in 1993 under the auspices 
of the Council of Europe, and which resulted in the 'Delphi Declaration' on 
minority rights; the Minority Languages Conferences; and the Euroskoalle 
Conferences. In total the Commission assisted over 60 meetings, each attended 
by between 20 and 200 people. 
(d) Festivals and Cultural Events 
The Commission has supported a diverse programme of five cultural events, 
such as dramatic works, musicals, and exhibitions. Together with projects in 
the field of the media, five events are an essential part of a strategy to develop 
and maintain the vibrancy of linguistic œmmunities. Festivals and cultural 
events are often planned to coincide with conferences and seminars of a more 
academic nature. 
Two regular international events bring together film and video makers from 
different regions of the EU. One is the Celtic Film and Television Festivd, 
which now includes wider participation than just the Celtic regions. The 
second is the Audiovisud Festivd for Minority Cultures. In addition, a series 
of successful cultural festivals, including dramatic works, have been organised, 
especially in Occitan and Catalan regions of France. 
(e) Media Projects 
While the Commission's priorities have tended to remain in the educational and 
academic spheres, there is a continual demand from linguistic communities to 
make materials such as films, magazines, books, and cassettes available in their 
languages. It is argued, with some justification, that one of the most severe 
threats to the continued development of a language is the lack of available 
13 
materials and new works in the language. The Cbrnrnission has part funded 
both print and audio-visual media, with the emphasis on the former since these 
projects tend to be more economically viable and it would not be a sensible 
distribution of resources to allocate an unbalanced proportion of funds to 
relatively few films. However, in the case of films, the Commission has been 
able to make effective contributions to the pre-production costs, pilot 
programmes, and other 'start-up' costs. 
A key project supported by the Commission has been the Children's Publishing 
Secretariat which coordinates the pubUcation of illustrated children's books in 
a range of languages. The secretariat is also able to liaise between large 
publishers and those working in lesser used languages and offer guidance and 
expertise. 
Television and radio broadcasting in lesser used languages has been promoted 
to a limited extent under the budget line. 
(f) Information 
One of the more significant developments in recent years has been the 
establishment of the Mercator information networks, which follows 
developments and collects information in four key areas relating to lesser-used 
languages. As with much work in this area, information is often not readily 
accessible and organisations and many people working in the field do not have 
experience of international communication. This is especially so in the case of 
the media in the smaller communities, where many journals are produced on a 
part-time basis by dedicated volunteers. Notwithstanding their situation, they 
represent the best available source of iriformation and Mercator has sought to 
bring together and analyze the available data and place it at the service of 
researchers and others working in the field 
A number of Member States have, relatively recently, devolved certain 
administrative functions to a regional level at a time when there is an increasing 
concern for the diversity of cultures within Europe. As a consequence, there 
has been a growth in activity within linguistic communities, such as the 
estabh'shment of minority language medium schools, or the increased funding 
of television broadcasts. Many developments have come about as a result of 
legal or even constitutional change and, at the level of human rights, the 
question of minority rights including those of linguistic minorities, has come 
to the fore. Mercator has the task of recording and keeping up to date with 
these changes and following legal and constitutional amendments. 
In addition to sur^rting the Mercator pilot centres, the Commission has 
assisted a number of individual publicity and information initiatives. Of course, 
these are not the only information projects as many of the educational, media 
14 
and other events supported by the Commission have included a necessary 
publicity element. 
(g) Study Visits 
The Commission has awarded grants towards the costs of study visits, chiefly 
for members of one linguistic œmmunity to investigate the conditions 
elsewhere. In general, the visits are confined to educationalists, journalists, and 
community and youth leaders. An annual study visit programme, now of 85 
bursaries is organised by the European Bureau for Lesser Used Languages. 
(h) European Bureau for Lesser Used Languages 
The European Bureau for Lesser Used Languages is an independent 
organisation which seeks to improve the recognition of lesser-used languages; 
to raise public awareness; to disseminate mformation about the languages; and 
to give advice to the general public and bodies such as the Commission, the 
European Parliament, Member State and regional Governments, and the Council 
of Europe. The Bureau is particularly active in the domain of education in 
promoting language learning. 
The governing council consists of representatives from ten Member State 
committees, which are run on a largely voluntary basis. The headquarters of 
the Bureau are in Dublin and a documentation centre and press office, the 
Brussels Information Centre (BIC), has operated in Belgium since 1992. The 
office holders of the Bureau since 1989 are as follows: 
dde Resident Secretary-General 
1989-92 A.V. Chapalain D. Ô Riagain 
1992- H. Ô Miirchù D. Ô Riagâin 
Within their areas, the Member State committees carry out a considerable 
number of activities in addition to their contribution to the organisation as a 
whole. Where there are several linguistic communities, efforts are made to 
cater for their différent needs. The committees are organised in Belgium 
(BELKOM), Denmark, France, Germany, Ireland, Italy (CONFEMILI), 
Luxembourg, the Netherlands, Spain, and the United Kingdom 
The Dublin and Brussels offices are substantially funded under the budget with 
additional funds coming from the Governments of Ireland and Luxembourg; the 
Provincial Government of Friesland; the Germanophone and French 
communities of Belgium; and the Generalitat of Catalunya. Additional 
contributions are made by numerous bodies and groups for specific events. 
15 
3. CosausioN 
3.1 A Changing Environment 
Over the last decade, considerable changes have taken place in a number of 
spheres which affect minority language communities in the European Union. 
At the national level, political moves towards decentralisation, especially in the 
educational and cultural domains, have resulted in an expansion of activity in 
respect of a number of minority communities. 
At the European level, the completion of the internal market at the end of 1992 
will have affected members of linguistic minorities, notably those in 
communities which have links across the Union's internal borders, such as 
Basque speakers in Spain and France or German speakers in the Alsace region 
of France. These communities may be expected to benefit from an increase in 
cross-border activity where the common language and traditional cultural links 
can be used to facilitate cross-border trade and other contacts. On the other 
hand, other linguistic communities, particularly those on the periphery of the 
Union, may experience greater pressures. 
However, there is a renewed determination at the European level to share the 
benefits of the internal market with the less prosperous regions of the Union. 
This takes the form of regional aid, such as support for infrastracture projects, 
financed out of the stiuctural funds. This aid particularly benefits peripheral 
areas and the communities living in the priority regions. 
In central and eastern Europe, and elsewhere in the world, the EU is playing 
an increasing role as a promoter of democracy and human rights, deluding the 
rights of linguistic minorities. It is clear that in this regard, the Union and its 
Member States need to be seen to apply the same or higher standards of mutual 
respect for minority groups at home which they wish to see enforced abroad. 
3.2 Treaty on European Union 
Education and culture 
The forces which have been nx)tivating the agenda for policy developments in 
the domestic, European and external domains, will have also influenced the 
drafting of the Treaty on European Union43. Indeed, from the point of view of 
Treaty on European Union (TEU), signed at Maastricht 7.ii.92, entered into force 1 jd.93. The TEU contains nineteen 
articles, Artide A fit C, etc. through to Artide S. Artide G comprises over 200 amendments to the original Treaty of 
Rome, which is now called the Treafy Establishing the European Commurity (EC). The articles of the EC Treaty are 
numbered Artide 1, Z 3, etc. through to Artide 248. 
16 
linguistic minorities, the provisions of the Treaty contain a number of 
significant features. The key articles are those on education (Article 126) and 
culture (Article 128). Article 126 requires that any action in the field of 
education must fully respect "the responsibility of the Member States for the 
... cultural and linguistic diversity"44 of education systems. 
The article on culture itself Article 128, underlines the need to respect the 
"national and regional diversity"45 of Member States. The article provides that, 
at the European level, cooperation between Member States should be 
encouraged and, where necessary, specific action can be taken to support and 
supplement Member State measures in four areas: (i) the disserrination of the 
culture and history of European peoples; (ii) the conservation and safeguarding 
of cultural heritage of European significance; (iii) non-commercial cultural 
exchanges; and (iv) artistic and literary creation46. There is a clear and 
propitious link to the educational domain in this article. 
Both the educational and cultural articles require the Union and the Member 
States to cooperate with third countries and with the Council of Europe and 
other international institutions in these fields. The Council of Europe has, of 
course, been particularly active recently in the area of regional or minority 
languages and the rights of linguistic minorities47. 
Article 128 on culture contains one further highly significant provision in 
relation to other European policies (which does not have a corollary in Article 
126); The Community is required to "take cultural aspects into account in its 
actions under other provisions"48 of the Treaty. 
Committee of the Regions 
In* legislating under both Article 126 (education) and Article 128 (culture), 
reference will have to be made to the Committee of the Regions, a new body 
established under the Treaty49. The Committee must be consulted by the 
Council and by the Commission where required by the Treaty. The Cbrnmittee 
can also deliver opinions on its own initiative and may be consulted from time 
to time by the Council or by the Commission where either institution considers 
44 Article 126(1) 
45 Article 128(1) 
46 Article 128(2) 
47 See Section 1: Introduction 
48 Article 128(4) 
49 Artide 198a 
17 
it appropriate. The Committee's power, therefore, is that of consultation and 
its influence will equal the value and integrity of its formal opinions. It is 
likely that the interests of regional linguistic minorities will be represented 
within this body. 
Subsidiarity 
The Treaty on European Union formally mcorporates the principle of 
subsidiarity into European law. This is a principle which has been practised for 
many years in Member States with a federal structure. The essence of 
subsidiarity is summed up in the first article of the Treaty50, which states that 
decisions should be taken as closely as possible to the citizen. The main article 
on subsidiarity is more specific. It provides that in the domains which are not 
in its exclusive competence, which include education and culture, the 
Community shall take action: 
"only if and in so far as the objectives of the proposed action cannot be 
sufficiently achieved by the Member States and can therefore, by reason of the 
scale or effects of the proposed action, be better achieved by the Community".51 
This principle will clearly inform all Commission actions, including those in 
relation to minority linguistic communities. Assuming that activities in the 
minority languages area are likely to remain small-scale, the key element in this 
definition is that the 'objectives' of the proposed action would be better 
achieved at the Community level than at the national level. In ordinary 
language, this provision requires that action at the European level should 
incorporate a 'European dimension'. 
Common Foreign and Security Policy 
The Treaty of European Union also provides for the estabhshment of a common 
foreign and security policy32. The objectives of the foreign policy include the 
development and consolidation of "respect for human rights and fundamental 
freedoms"53. This should be read to include the rights of linguistic and other 
minorities. Work at the Union level is likely to continue under Article J in 
relation to minority groups in central and eastern Europe and elsewhere. This 
will of course build on the measures the Member States and the Union have 
already taken in the context of the Europe Agreements, Council of Europe 
50 Article A, TEU 
51 Article 3b 
52 Article J, TEU 
M Article J. 1(2) 
18 
action, and within the CSCE.54 
Summary 
There is clearly a common thread between the desire to protect the diversity of 
European culture on the one hand and the determination to uphold the rights of 
minorities on the other; and a further link from these ideas to the incorporation 
of subsidiarity as a guiding principle for policy development. These three 
concepts - cultural diversity; minority rights; subsidiarity - may be seen as 
different facets of the same stone, and since they are built into the Maastricht 
Treaty, these principles are likely to be among the parameters or ground-rules 
for further European integration. 
3.3 Activities financed by the Commission 
This report covers a wealth of activities touching some forty-five linguistic 
communities mainly in the area of education and learning, but also in relation 
to pubhshing, film-making, rx)licy-making, research, theatre, musicals, 
irrformation, and data-processing. While some of the activities represent 
ambitious Europe-wide projects, such as Mercator and the operations of the 
European Bureau for Lesser Used Languages, others involve bilateral 
communication, and others are concerned only with actions in one region. A 
large proportion of the activities represented here directly affect individuals and 
illustrate the relevance of the European Cbrrimunity to a diverse cross-section 
of Europe's citizens. 
Priorities for funding 
With the entry into force of the Treaty on European Union, it would be timely 
to re-examine priorities for Commission funding under the budget line. Firstly, 
it is clear that the Commission will continue to concentrate funds on actions 
which promote a European dimension, such as networks, joint action, 
œmparative work, cross-border evaluation, and visits to and reports on activity 
in other regions. These types of action should lead directly to the transfer of 
experience and knowledge across regions. 
The existing criteria used by the Commission should continue to apply and it 
would be appropriate, therefore, to reiterate these. Applications for funding are 
measured against five sets of criteria: 
(a) The project would have a multiplier effect: e.g., the project has links with 
existing projects and initiatives; or the intended beneficiaries are 
54 See also Section 1 
19 
community leaders, trainers, opinion formers, etc.; or the project will have 
lasting and wide effects in some other way. 
(b) There is a significant need for the action: e.g., the proposal concerns a 
region or local community at a comparative disadvantage. 
(c) The qudity of the proposd is of a high standard: e.g., the proposal is 
innovative; the application manifests good preparation and planning and it 
is clearly presented, especially with regard to the budget statement. 
(d) Effective provision is made for evduation and results: an evaluation phase 
should usually be included, e.g. by an ^dependent assessor; plans should 
be in evidence for the results or conclusions to be widely disseminated 
(e) Cost: the proportion and level of funding sought from the Commission is 
reasonable, appropriate and well justified 
Level of funding 
Only very rarely does the Commission consider 100% funding. A more usual 
figure is 15-35% although contributions have ranged from 5% or less for very 
large projects up to 50% for high-priority areas. As a general guide the 
proportion of funding from the Commission should be commensurate with the 
degree to which the project meets the priority criteria above. 
3.4 Recommendations 
Priority areas 
In considering areas for priority action in the future, the Commission should 
build on the successes of the past and continually look for new and innovative 
directions. However, applications may be received in respect of any project 
which fulfils the priority criteria outlined above. The following outline shows 
a limited number of fields which deserve particular and continued attention 
from the Commission in the context of the lesser used languages budget line. 
(a) Bilingual and multilingual education (which includes one or more lesser 
used language), such as research, pilot projects, development of methodology 
and didactic materials, and teacher framing in respect of: 
preschool bilingual education and play-groups; 
multilingual learning initiatives at school (particularly 'passive' skills 
teaching and language-family teaching); 
20 
development of distance learning strategies for learners of lesser used 
languages; 
school-parent cooperation and education information campaigns; 
integrated, community-based language-promotion and language teaching 
campaigns and language-use strategies. 
(b) Media and cultural projects involving lesser used languages or cultures 
book co-productions; 
magazine networks; 
radio, TV and video co-productions; 
cultural festivals rjringing together groups from different linguistic 
cornmunities. 
(c) Iriformation centres and networks of people, such as researchers, working 
on similar topics in linguistic communities across the EU. 
(d) Study visits and exchanges between regions. 
Joint Projects and Evduxtion 
Given the extent of valuable and high quality work being undertaken with 
Commission support across the European Union, more could be done on the 
part of project organisers to ensure wider ctissemination of the results and 
benefits of the projects. There are two relatively straightforward ways in which 
this could be achieved: either the project organisers could arrange for 
participants from elsewhere in the EU to be included in the management of a 
project, or a report of the progress and results of the project could be written 
and distributed to interested people. There are now, through Mercator or the 
Bureau, sufficient sources for mailing lists of experts to facilitate pan-European 
contact and organisers could be encouraged to avail of these services in 
formulating proposals. Obviously, it is not sufficient for project organisers to 
merely be open to outside involvement; the cooperation must be planned and 
costed into a proposal from the beginning. 
Many of the more innovative projects, particularly pilot projects in the domains 
of education and the media, currently include evaluation phases. This is a trend 
which should be encouraged. It should even be possible on occasion to invite 
an expert from another region of the EU to undertake the evaluation, and so 
bring outside expertise and experience to bear. 
21 
Links to other policies 
While this report has concentrated on the activities under the lesser used 
languages budget line, reference has been made to initiatives already being 
undertaken within other policies managed by the Commission. These include 
die work on minority rights in the context of external policy and cultural 
initiatives which are open to involvement from minority language groups. 
Another example, in edcuational policy, is the assistance which has been 
granted towards the creation of links between university ckpartrnents working 
in the lesser used languages field 
An area where further attention could be paid to linguistic groups is in regional 
policy. As has been noted above, there are many similarities between linguistic 
groups in the realms of economic conditions, environment, socio-cultural status, 
and ethno-linguistic vitality, where the feasibility of a distinct policy initiative 
in respect of the linguistic communities could usefully be examined 
Finally, there is the question of the contribution which linguistic mmorities can 
make to the development of the European Union. For example, there is the 
practical experience with bilingual education, particularly at the pre-school 
level, which is more highly developed within some minority language education 
systems than it is in the State-wide educational framework. In the wider 
context, the diversity of European culture itself is considerably enriched by the 
languages and cultures of regional or minority groups and their continued social 
and economic development will be an important element in further European 
integration. Action must not be confined to the tourist and heritage mdustries, 
which can in fact have a negative impact on the self-esteem and development 
of immunities, but should focus on the needs and potential of the communities 
themselves. But any initiatives must be based on sound analysis of the data: 
thé next step in this process is to be the production of the Euromosmc study. 
22 

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