Commission Working Document - Report on the implementation of the Action Plan "Promoting language learning and linguistic diversity" {SEC(2007)1222}
Date: 2007-09-25
Institutions: European Commission
Subjects: action programme, cultural promotion, language policy, language teaching, multilingualism, report

COMMISSION OF THE EUROPEAN COMMUNITIES 

Brussels, 25.9.2007 
COM(2007) 554 final 

COMMISSION WORKING DOCUMENT 

Report on the implementation of the Action Plan "Promoting language learning and 
linguistic diversity" 

{SEC(2007)1222} 

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TABLE OF CONTENTS 

1. 

2. 

3. 

4. 

5. 

Introduction .................................................................................................................. 3 

Promoting language learning and linguistic diversity.................................................. 3 

Results of the Action Plan “Promoting language learning and linguistic diversity” –
increased importance of language policies at European and national level................. 4 

Main outputs................................................................................................................. 6 

The implementation of the Action Plan in the strategic areas ..................................... 8 

5.1. 

Strategic Area 1: Lifelong Language Learning............................................................ 8 

5.1.1. 

‘Mother tongue plus two other languages’: making an early start............................... 9 

5.1.2.  Language learning in secondary education and training............................................ 10 

5.1.3.  Promoting content and language-integrated learning (CLIL).................................... 11 

5.1.4.  Language learning in higher education ...................................................................... 12 

5.1.5.  Adult language learning ............................................................................................. 12 

5.1.6.  Language learners with special needs ........................................................................ 13 

5.1.7.  Range of languages .................................................................................................... 13 

5.2. 

Strategic Area 2: Better Language Teaching ............................................................. 14 

5.2.1.  The language-friendly school..................................................................................... 14 

5.2.2.  The languages classroom ........................................................................................... 14 

5.2.3.  Language teacher training .......................................................................................... 14 

5.2.4.  Supply of language teachers....................................................................................... 15 

5.2.5.  Testing language skills............................................................................................... 16 

5.3. 

Strategic Area 3: Building a Language-Friendly Environment ................................. 17 

5.3.1.  An inclusive approach to linguistic diversity............................................................. 17 

5.3.2.  Building language-friendly communities................................................................... 18 

5.3.3. 

Improving supply and take-up of language learning.................................................. 19 

5.4. 

A Framework for Progress ......................................................................................... 19 

5.4.1.  Better-informed decisions .......................................................................................... 19 

5.4.2.  More effective information sharing between practitioners ........................................ 20 

5.4.3.  Clear procedures for the follow-up of the Action Plan .............................................. 20 

6. 

Conclusion.................................................................................................................. 20 

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1. 

INTRODUCTION  

Languages are at the heart of the European project: they reflect our different cultures and, at 
the  same  time,  provide  a  key  to  understanding  them.  There  is  a  clear  role  for  the  European 
Commission  to  take  support  and  complement  the  Member  States  in  their  promotion  of 
multilingualism:  citizens  who  speak  more  languages  can  reap  the  full  benefits  of  free 
movement in the European Union and can integrate more easily in another country for study 
or work. Linguistic competence is highly sought after in companies and good language skills 
make  people  more  employable.  Languages  are  the  prime  tools  of  communication:  knowing 
more languages opens doors to other cultures, and improves intercultural understanding both 
within Europe and with the rest of the world.  

Multilingualism as a portfolio in its own right at European level is the acknowledgement that 
languages matter to citizens and that there is a need to take action at the highest political level 
to bring together resources to promote multilingualism.  

Promoting  multilingualism  is  a  responsibility  shared  between  the  Commission  and  Member 
States, which have already taken significant steps to adapt their educational policies to equip 
students at all levels with better language skills. This is a major result, which shows that the 
Commission and Member States are working together towards common objectives. 

This  report  outlines  the  main  results  of  the  implementation  of  the  Action  Plan  “Promoting 
language learning and linguistic diversity 2004-2006”, both at European and national level. It 
highlights  current  trends  in  the  reform  of  educational  systems  to  better  promote  language 
learning, takes stock of what has been achieved in the past three years and provides a basis for 
further action in the field of multilingualism policy. 

2. 

PROMOTING LANGUAGE LEARNING AND LINGUISTIC DIVERSITY  

The European Commission has a long-standing commitment to promoting language learning 
and  linguistic  diversity.  The  first  comprehensive  programme  promoting  language  teaching 
and learning, Lingua, came into force in 1989 and since then languages have been at the heart 
of European programmes in the field of education and training.  

At the end of the European Year of Languages in 2001, both the European Parliament and the 
Council  adopted  resolutions  inviting  the  European  Commission  to  take  further  action  to 
promote languages. In 2002the Heads of State and Government meeting in Barcelona made a 
political  commitment  to  improve  the  mastery  of  basic  skills,  in  particular  by  teaching  two 
foreign languages to all from a very early age. In 2003 the European Parliament adopted an 
initiative report inviting the Commission to better cater for regional and lesser-used languages 
in the context of enlargement and cultural diversity.1 

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A5-0271/2003 final of 14.07.2003: Report from the European Parliament with recommendations to the 
Commission on European regional and lesser-used languages — the languages of minorities in the EU 
— in the context of enlargement and cultural diversity 

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The  Action  Plan  “Promoting  Language  Learning  and  Linguistic  Diversity”2  was  the 
Commission’s answer to the Council and Parliament and took into account the feedback from 
a  wide-ranging  consultation  held  between  2002  and  2003.  At  that  time,  what  is  now  called 
“The Lisbon Strategy for Growth and Jobs” was in its first phase. Improving foreign language 
learning was included as a specific objective of “Education and Training 2010”, the education 
and  training  component  of  the  Lisbon  Strategy3.  Its  long-term  agenda  to  gear  European 
policies  towards  common  objectives  and  its  open  method  of  coordination,  enabling  close 
partnership with Member States, have spurred cooperation in language policies. 

In  the  first  place,  communication  in  foreign  languages  is  listed  as  one  of  the  eight  key 
competences for lifelong learning in the Recommendation of the European Parliament and of 
the  Council  of  18  December  2006.4  Secondly,  fruitful  cooperation  has  been  developed  with 
the Member States through the Working Group on Languages, which gathers together senior 
officials  responsible  for  language  policies  in  Member  States.  The  Group  meets  regularly  to 
exchange  information  and  good  practices.  Its  commitment  has  been  instrumental  in  the 
follow-up of the Action Plan at national level. 

At  Commission  level,  the  increasing  importance  of  language  policies  was  reflected  by  the 
explicit mention of multilingualism in the portfolio of Commissioner Figel’ in 2005. This led 
to  the  definition  of  a  strategy  for  multilingualism,  encompassing  both  internal  and  external 
action,  set  out  in  the  Commission  Communication  “A  new  Framework  Strategy  for 
Multilingualism”5.  In  parallel,  the  Commission  started  developing  an  indicator  for  language 
competence as called for by the Barcelona Council in order to benchmark the competences of 
students  in  two  foreign  languages  at  the  end  of  their  initial education.6  Multilingualism  is  a 
key  area  where  Europe  can  get  closer  to  citizens’  needs.  Accordingly,  when  Commissioner 
Orban  took  up  office  in  January  2007,  it  became  a  portfolio  in  its  own  right.  It  is  currently 
expanding its scope beyond lifelong learning, notably to the areas of languages and business 
and by contributing to the 2008 Year of Intercultural Dialogue. 

3. 

RESULTS  OF  THE  ACTION  PLAN  —  INCREASED  IMPORTANCE  OF  LANGUAGE 
POLICIES AT EUROPEAN AND NATIONAL LEVEL 

The Action Plan set out the main objectives to be pursued in three strategic areas: 1. Lifelong 
language learning, 2. Better language teaching, 3. Building a language-friendly environment. 
A  fourth  chapter  “A  Framework  for  Progress”,  targets  the  overall  development  of  language 
policy at both European and national level.  

The  Action  Plan  put  forward  47  concrete  proposals  for  action  by  the  Commission  within  a 
given time frame (2004-2006) calling for a review in 2007. It also invited Member States to 

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4 
5 
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COM(2003)  449  final  of  24.07.2003:  Communication  from  the  Commission  to  the  Council,  the 
European  Parliament,  the  Economic  and  Social  Committee  and  the  Committee  of  the  Regions, 
Promoting Language Learning and Linguistic Diversity: An Action Plan 2004-2006. 
OJ  C  142,  14.6.2002  p.  1.  Council,  Detailed  work  programme  on  the  follow-up  of  the  objectives  of 
education and training systems in Europe. 
2006/962/EC. 
COM(2005) 596 final of 22.11.2005. 
Communication  from  the  Commission  to  the  European  Parliament  and  the  Council,  The  European 
Indicator of Language Competence. Brussels, 1.8.2005 COM(2005) 356 final. 
Communication from the Commission to the Council, Framework for the European survey on language 
competences. Brussels, 13.4.2007 COM(2007) 184 final 

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take action towards the objectives, while recognising that they would be difficult to achieve in 
three years. 

In  general,  the  Commission  and  the  Member  States  have  made  substantial  progress  in 
implementing  the  actions  announced  in  the  Action  Plan.  As  a  consequence  of  all  these 
initiatives,  the  promotion  of  language  learning,  linguistic  diversity  and  multilingualism 
as a whole have gained significantly in political importance.  

At  Commission  level,  the  implementation  of  the  Action  Plan  kept  the  spotlight  on 
multilingualism issues and drove a sustained effort to promote languages in the education and 
training programmes. 

In the policy field, it offered a framework of strategic issues for discussion and cooperation 
with  Member  States,  allowing  for  a  focused  exchange  of  good  practice  and  gearing  work 
towards the delivery of concrete results. The studies, conferences, seminars, and information 
initiatives proposed by the Action Plan and carried out by the Commission fed the discussion 
among policy makers and practitioners and helped raise awareness of key language issues and 
support policy making and quality language teaching.  

At programme level, the Action Plan called for the strategic use of the education and training 
programmes  so  as  to  make  the  most  of  their  support  for  promoting  language  learning  and 
linguistic diversity. Establishing priorities and calling for specific information actions led to 
remarkable results: the Socrates and Leonardo Programmes invested nearly 150 million euros 
in  actions  with  a  specific  language-learning  objective  in  2004-2006,  an  increase  of  66% 
compared to 2000-2002.  

At national level, the Action Plan was taken as a framework for action. A trend towards the 
reform  of  educational  systems  to  comply  with  the  “mother  tongue-plus-two”  principle 
enunciated in Barcelona was already noticeable in a number of Member States, although some 
reported that the Action Plan influenced their decision to launch reforms. The main impact of 
the Action Plan at national level was to orient and support national policies to take action in 
the  strategic  areas  set  out  by  the  Action  Plan  and  along  the  lines  drawn  there.  After  three 
years,  the  overview  of  national  language  policies  looks  more  consistent  overall:  there  is  a 
general consensus on basic issues like the importance of languages as a key competence in a 
lifelong  learning  perspective,  the  need  for  teaching  students  two  languages  in  their  initial 
education,  and  the  necessity  of  quality  language  teaching  and  transparent  assessment. 
Although  countries  did  not  start  from  the  same  baseline,  nor  have  they  taken  action  at  the 
same speed, reforms have focused mainly on the following areas: 

–  Review  of  the  whole  educational  system  in  the  light  of  a  lifelong  language  learning 

approach; 

–  Introduction  of  early  language  learning  in  primary  and  sometimes  in  pre-primary 

education; 

–  Introduction of some CLIL7 (content and language integrated learning) in curricula; 

–  Increased offer of languages at secondary level; 

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CLIL  involves  teaching  a  subject  through  the  medium  of  a  different  language,  attaching  equal 
importance to developing proficiency in both the language and the subject concerned. 

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–  Increased investment in language teacher training; 

–  Review of curricula, examinations and certificates to align them to the Common European 

Framework of Reference for Languages; 

–  The  use  of  European  programmes  and  tools  developed  by  the  Commission  and  by  the 
Council  of  Europe  to  review  national  education  systems,  develop  suitable  language 
materials  and  tests,  and  to  promote  language  teacher  training  abroad  and  European 
cooperation in schools. 

4. 

MAIN OUTPUTS 

The Action Plan called for 47 actions to be carried out to implement the policy objectives at 
Commission  level,  taking  into  account  the  Commission’s  competences  and  the  available 
budget.  The  Commission  delivered  in  nearly  all  of  them.  Of  the  47  actions,  41  will  be 
completed by the end of 2007 (33 have already been completed and 8 more will be finalised 
by  the  end  of  2007),  5  will  be  implemented  through  the  Lifelong  Learning  Programme 
(LLP) (2007-2013). One was cancelled but partially taken up in another action. 

The implementation of the Action Plan led in concrete terms to:  

–  The rebuilding of the languages pages on the Europa website (I.4.18), as a gateway to 
information  and  language  resources  specifically  geared  towards  adult  learners  and 
language  teachers,  along  with  information  initiatives  carried  out  at  national  level  to 
promote language learning and mobility abroad (II.3.1 and III.3.2). The widely recognised 
need to raise awareness of the advantages of language learning among the wider public led 
to the creation of an annual budget for information campaigns on languages within the 
Lifelong Learning Programme (IV.3.1). 

–  13  Europe-wide  studies  (10  completed  and  3  nearing  completion)  to  set  the  context, 
identify  precedents  and  chart  good  practices  and  innovative  methodologies  on  specific 
language  features.  They  include  the  ground-breaking  “European  Profile  for  Language 
Teacher  Education  in  Europe”  (II.3.2);  “Special  Educational  Needs  in  Europe  —  the 
teaching  and  learning  of  languages”  (I.5.1),  “Lingo:  50  ways  to  motivate  language 
learners”  (IV.1.2)  and  “Effect  on  the  European  Economy  of  Shortages  of  Foreign 
Language Skills in Enterprise” (IV.1.3). The latter study is the first step towards extending 
multilingualism  policy  to  business  needs.  On  21  September  2007,  a  Conference  on 
Business,  Languages  and  Intercultural  Skills  will  discuss  the  issue  of  languages  as  a 
competitive strength for Europe.  

–  6  European  conferences  and  seminars  on  languages.  These  include  the  European 
Conference  on  content  and  language  integrated  learning  (CLIL)  in  2005  (I.2.6),  during 
Luxembourg’s  presidency,  where  for  the  first  time  CLIL  was  brought  to  the  attention  of 
European  policy  makers.  and  the  European  Conference  on  Regional  and  Minority 
Languages in Education Systems (III.1.1), gathering stakeholders from all over Europe to 
exchange practice on the way regional and minority languages could be successfully taught 
to new generations. 

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This  reference  and  others  relate  to  the  original  numbering  of  the  actions  in  the  Action  Plan.  They 
identify all the actions in both the text and the annexes. 

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–  17  actions  at  programme  level  to  improve  the  promotion  of  language  learning 
through European programmes. The Socrates and Leonardo Programmes were the main 
ones  involved,  but  the  Town-Twinning,  E-Learning,  Culture,  Youth  and  the  Framework 
Research Programmes also contributed, where priorities for activities targeting languages 
were included along with increased support for language preparation prior to mobility. 13 
of these actions have been successfully completed, two are nearing completion and two are 
well  under  way.  Furthermore,  these  actions  will  have  a  lasting  effect  as  the  new 
generation  of  programmes  for  2007-2013  (Lifelong  Learning  Programme,  Culture, 
Youth in Action, Europe for Citizens, and Seventh Framework Programme for Research) 
will put more emphasis on promoting language learning and linguistic diversity. 

–  Last  but  not  least,  the  widely  recognised  need  to  raise  awareness  of  the  advantages  of 
language  learning  among  the  wider  public  led  to  the  creation  of  an  annual  budget  for 
information campaigns on languages within the Lifelong Learning Programme (LLP) 
(IV.3.1). 

Compared  to  the  years  2000-2002,  the  Socrates  and  Leonardo  Programmes  invested  66% 
more in actions with a specific language learning objective: their budget share increased from 
€30 million to nearly €50 million a year in the period 2004-2006. 

In 2004-2006, the Socrates and Leonardo Programmes supported: 

– 

– 

– 

– 

– 

– 

– 

– 

2951 school language projects (with an increase of 84% compared to the period 
2000-2002); 

3957 language assistantships (increase of 62%);  

9434  Erasmus  students  attending  intensive  linguistic  preparation  courses 
(increase of 160%); 

300 adult education learning partnerships (increase of 689%); 

765 in-service training grants for foreign-language teachers in adult education 
(new action); 

1820  in-service  training  grants  for  language  teachers  in  vocational  education 
(increase of 143%); 

41 Lingua projects to develop new language learning or testing tools (increase 
of 24%); 

39 Lingua projects to promote awareness of the benefits of language learning 
and  to  bring  language  learning  opportunities  closer  to  citizens  (increase  of 
160%). 

These results are encouraging. However, some parts of the programmes could perform better: 
for  instance,  the  number  of  language  projects  to  develop  teacher  training  material  for 
language teachers in Comenius, Grundtvig and Leonardo did not increase consistently across 
the board, nor did the number of pupils involved in school language projects and the number 
of  language  teachers  receiving  a  training  grant.  A  recent  study  has  pointed  out  that 
participants in Comenius projects did improve their language skills, but mainly in English at 
the expense of other languages. The same goes for Comenius in-service training grants, which 

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were  mostly  for  training  in  English,  thus  not  reflecting  the  policy  to  promote  linguistic 
diversity and increase the range of languages on offer.  

The information on initiatives undertaken at national level is based upon the national reports 
sent to the Commission by the Member States on the follow-up of the Action Plan at the end 
of  2006  (IV.1.1).  20  Member  States  (Austria,  Belgium  —  Dutch-speaking  Community, 
Bulgaria,  the  Czech  Republic,  Estonia,  Finland,  France,  Greece,  Hungary,  Ireland,  Italy, 
Lithuania,  the  Netherlands,  Norway,  Poland,  Slovenia,  Slovakia,  Spain,  Sweden  and  the 
United  Kingdom)  drafted  a  comprehensive  report  on  their  national  implementation  of  the 
Action Plan and a few more transmitted partial information (Cyprus, Germany, Luxemburg, 
Romania). These sources were analysed for the Commission by an external consultant, who 
produced a report outlining the main policy trends in Member States along with a selection of 
good practices. His independent report was discussed by the Working Group on Languages, 
which contributed complementary  information. The selection  of  good  practices presented in 
the present document is based upon this work. It is illustrative and not exhaustive: it gives an 
indication of the extent and type of actions undertaken at national level.  

5. 

IMPLEMENTATION OF THE ACTION PLAN IN THE STRATEGIC AREAS 

The  following  four  sections,  which  follow  the  structure  of  the  Action  Plan  (three  strategic 
areas plus the framework for progress), give a detailed description of the results of each of the 
47  actions,  which  are  cited  in  brackets  in  the  text.  A  complementary  Commission  Staff 
Working Paper presents tables showing the status of the actions and listing the deliverables, 
sources of information and relevant websites. 

5.1. 

Strategic Area 1: Lifelong-Language Learning 

The Action Plan placed language learning within a lifelong learning perspective and called for 
appropriate  action  to  implement  such  an  approach.  At  national  level,  some  countries  have 
reformed  their  systems  along  these  lines  by  establishing  a  continuum  between  the  different 
levels of education and by devising assessment systems to evaluate partial competences and to 
enable re-entry into education at a later stage.  

Austria: The Language Committee 

Austria is currently using the Council of Europe Country Profile to assess its language teaching and 
learning  policy  before  embarking  on  reforms.  A  Language  Committee,  composed  of  educational 
stakeholders  and  including  social  partners,  looks  at  all  matters  related  to  multilingualism  and 
coordinates the implementation of the Lisbon objectives and other European initiatives in the field of 
languages, such as the Action Plan. 

Bulgaria: The National Reform 

Language learning is an integral part of the latest national education reform adopted by parliament in 
2006. The aim is to change the structure of the education system by introducing the teaching of two 
foreign languages in all schools and a year of intensive language learning for all students in grade 8.  

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Finland: Finnish Language Education Policies 

The government has been supporting a project to examine the basic principles and goals of language 
education  policies  from  the  viewpoint  of  multilingualism,  lifelong  learning  and  European  integration. 
The  final  recommendations  are  currently  being  considered  with  a  view  to  improving  the  education 
system.9 

Hungary: the World Language Programme 

A comprehensive strategy for developing foreign language teaching and learning was launched by the 
government  under  the  name  “World  Language  Programme”.  Measures  include:  extra  funding  for 
school projects tackling various aspects of language teaching and learning; the introduction of a Year 
of  Intensive  Language  Learning  at  the  end  of  compulsory  education,  where  at  least  40%  of  the 
curriculum is devoted to foreign languages; a new school-leaving examination; and several guidelines 
and recommendations. 

Luxembourg: Readjustment of language teaching 

In 2005-2006, Luxembourg assessed its language policy using the Council of Europe Country Profile. 
The Ministry of Education and Vocational training then drew up a national action plan 2007-2009 “Plan 
de  réajustement  de  l’enseignement  des  langues”  with  66  action  points  covering  all  aspects  of 
language  teaching  and  assessment  from  infant  school  to  the  end  of  secondary  school,  while  also 
taking into consideration the languages of the migrant communities. 

United Kingdom: language learning at all ages 

A National Strategy for Languages has been operating in England since 2003. The Strategy embraces 
language  learning  at  all  ages  and  stages  from  early  years  to  adults  and  universities.  It  has  three 
overarching objectives: to improve the teaching and learning of languages; to introduce a recognition 
system;  and  to  increase  the  numbers  of  people  studying  languages  in  further  and  higher  education 
and work-based learning.  

At  Community  level,  the  programmes  in  the  field  of  education  and  training  have  increased 
their  support  for  the  linguistic  preparation  of  persons  participating  in  mobility  activities 
(I.0.1):  the  take-up  of  linguistic  preparation  doubled  in  Comenius  (teacher  training);  in 
Erasmus,  the  number  of  students  participating  in  Intensive  Language  Courses  increased  by 
nearly  40%;  and  the  Leonardo  Programme  spent  €15.6  million  to  support  linguistic  and 
cultural preparation for 175 000 trainees, students and young workers going on a placement 
abroad,  an  increase  of  77%  compared  to  2000-2002.  In  the  Lifelong  Learning  Programme 
(LLP), support for linguistic preparation has been extended to all types of mobility. 

5.1.1. 

‘Mother tongue plus two other languages’: making an early start 

Over the last four years, most Member States have reformed their primary (and in some cases 
pre-primary)  education  in  order  to  start  teaching  a  foreign  language  earlier.  The  trend  is  to 
start a second language (whether a foreign or minority language or a language with co-official 
status) earlier, generally in the first three years of primary education. 

The key problem encountered in implementing these reforms is the lack of adequately trained 
language teachers, both generalist teachers and specialists. In some countries, the earlier start 
is complemented by earlier take-up of a second foreign language (in the last years of primary 

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education  or  at  the  beginning  of  secondary  education).  Such  arrangements  should  be 
encouraged and more widely implemented.  

To  foster  the  introduction  of  early  language  learning,  the  Commission  financed  a  study  on 
“Main pedagogical principles underlying teaching languages to very young learners” (I.1.1). 
The  study  acknowledged  the  central  role  of  teachers  in  early  language  learning  and 
recommended  the  dissemination  of  research  findings  to  practitioners,  the  development  of 
methodologies and instruments to assess and evaluate children’s competences and support for 
starting a second foreign language at primary school. 

As  regards  information  and  networking  activities,  the  Commission  produced  a  brochure  for 
parents about the benefits of language learning, and will target parents as a matter of priority 
in  the  information  campaign  supported  by  the  LLP  (I.1.2).  It  also  supported  a  seminar  for 
practitioners  to  present  the  results  of  the  above-mentioned  study.  In  order  to  encourage 
networking  between  organisations  working  in  the  field,  early  language  learning  will  be  a 
priority for the Comenius and Key Activity Languages networks in 2007 (I.1.3). 

The Socrates Programmes supported early language learning and related teacher training by 
financing  11  Lingua  projects  (I.1.4)  and  by  granting  nearly  4000  language  assistantships 
(increase of 13%), with a number for primary and pre-primary schools as well (I.1.5). Primary 
and  pre-primary  schools  will  be  further  encouraged  to  host  a  language  assistant  under  the 
LLP.  

5.1.2.  Language learning in secondary education and training 

The  Action  Plan  invited  Member  States  to  pursue  their  commitment  to  give  pupils  the 
opportunity  to  study  at  least  two  foreign  languages,  with  the  emphasis  on  effective 
communicative ability, the ability to learn languages, and intercultural competences.  

Estonia, France, Germany, Lithuania, Slovenia and Spain: European sections / 

bilingual instruction 

Some countries have introduced “European sections”, where more languages are taught, also through 
CLIL,  and  special  attention  is  given  to  European  cooperation  and  intercultural  education.  Such 
initiatives are often pilot schemes with a view to making them part of mainstream education. 

Greece: a cross-thematic approach to languages 

As  a  result  of  the  reform  of  primary  and  secondary  school  curricula,  language  teaching  has  a 
horizontal  dimension  involving  more  cooperation  with  teaching  of  the  mother  tongue  and  other 
subjects.  Particular  attention  is  given  to  raising  awareness  of  linguistic  and  cultural  diversity  and 
developing intercultural skills. 

Germany, Netherlands, France Finland and Austria: CertiLingua, the ‘European 
international 

label  of  plurilingual,  European  and 

excellence 
competences’ 

Certilingua is intended as a supplement to school-leaving certificates to indicate the level of excellence 
in multilingual, European and international competences reached by a student in at least two foreign 
languages.  Schools  delivering  the  Certilingua  offer  at  least  one  subject  through  CLIL  and  aim  to 
develop the student’s intercultural competences through European and international project work. The 
Certilingua initiative stems from cross-border cooperation between German and Dutch schools and is 
gradually  extending  to  other  countries.  It  aims  to  increase  the  transparency  of  linguistic  and 

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intercultural  skills  acquired  by  students  by  providing  a  quality  label  of  excellence  recognised  in 
different countries.10 

The  Commission  supported  Member  State  efforts  by  increasing  the  possibilities  for  schools 
from  different  countries  to  learn  languages  together  and  to  further  develop  intercultural 
competences and multilingual comprehension: 

The  number  of  Comenius  school  language  projects  increased,  accounting  for  19%  of  the 
budget  allocated  to  Comenius  school  projects  (although  the  Action  Plan  recommended  a 
target of 25%). Further, 2 951 joint language projects involving 53 118 pupils and 8 853 staff 
participating  in  class  exchanges  were  also  supported  in  2004-2006  (I.2.1).  The  LLP  is 
currently aiming to achieve the target recommended by the Action Plan. 

A study of the linguistic and intercultural skills relevant to each stage of education or training 
(I.2.2) will be completed by the end of 2007. It will offer suggestions on how to improve the 
current teaching of languages to develop intercultural skills and on how to specify appropriate 
target objectives for intercultural competences for pupils in primary and secondary education. 
14  projects  and  2  networks  for  developing  training  materials  and  modules  to  promote 
multilingual comprehension approaches were funded by Comenius (I.2.3)  

5.1.3.  Promoting content and language integrated learning (CLIL) 

CLIL is increasingly being used in European classrooms as it is regarded as an effective way 
of strengthening communication skills and motivating students.  

Further  development  of  CLIL  teaching  materials  was  supported  through  4  Lingua  projects 
(I.2.4), and Comenius school projects working on CLIL approaches received priority (I.2.5). 
The  LLP  continues  to  give  priority  to  school  partnerships  that  promote  early  language 
learning, multilingual comprehension and CLIL.  

A  European  Symposium  on  “The  Changing  European  Classroom  —  the  Potential  of 
Plurilingual Education” (I.2.6) was held in Luxembourg in March 2005, in cooperation with 
the  Luxembourg  presidency,  which  reported  on  its  conclusions  to  the  Education  Council  of 
May 2005. The Symposium recalled the need to ensure that pupils and students receive CLIL 
provision at different levels of school education. It was also emphasised that teachers should 
receive special training in CLIL. 

In  2006,  the  Eurydice  network  published  a  survey  on  “Content  and  Language  Integrated 
Learning (CLIL) in schools in Europe” (I.2.7), setting out the main features of CLIL teaching 
in European countries. While interest in CLIL provision is growing, only a minority of pupils 
and  students  are  currently  involved,  with  the  situation  varying  greatly  from  country  to 
country. The survey showed that if CLIL provision is to be generalised, it has to be supported 
in most countries by a significant effort in teacher training. Another area demanding further 
work is evaluation: because CLIL is still  in its early  stages  in  most  countries,  evaluation  of 
CLIL practices is not widespread. 

10 

http://www.learn-line.nrw.de/angebote/certilingua/.  

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5.1.4.  Language learning in higher education 

The Action Plan called for a coherent language policy to be established by each university, to 
foster language learning for all students and offer them the possibility of studying abroad.  

Belgium, Czech Republic, Romania: Multidisciplinary university education 

In Belgium (Dutch-speaking Community), the Czech Republic and Romania some universities offer a 
graduate  programme  in  natural sciences,  history  or  geography with  a  minor  in  foreign  languages,  in 
some cases leading to a double degree. This combination of different disciplines enhances language 
competences and should also prepare future CLIL teachers. 

The  Commission  increased  the  number  of  Erasmus  Intensive  Language  Courses  (EILC) 
available to cover 6.4% of students going abroad (although the target set by the Action Plan 
was  10%)  (I.3.1).  This  percentage  varies  greatly  from  country  to  country:  Slovenian  and 
Turkish  universities  attracted  considerable  interest  in  their  Erasmus  Intensive  Language 
Courses,  involving  more  than  35%  of  incoming  students,  while  Czech,  Estonian,  Finnish, 
German, Hungarian and Norwegian universities had a participation rate of above 10%. All in 
all,  nearly  10 000  students  benefited  from  Erasmus  Intensive  Language  Courses  in  2004-
2006.  EILC  provision  has  been  further  strengthened  in  the  LLP,  although  more  action  is 
needed at university level to promote the language of the host country as a second language 
for incoming students. 

Regarding  international  cooperation  among  higher  education  institutions,  the  Erasmus 
Mundus  programme  supports  joint  master’s  programmes  in  different  Member  States  where 
non-EU students can learn at least two different European languages. In the years 2004-2006, 
2325 students from outside the EU received support to study for 57 different master’s degrees, 
including  3  in  linguistics  and  language-related  subjects.  The  Tempus  programme  supports 
cooperation among EU universities and 26 partner countries in the Western Balkans, Eastern 
Europe,  Central  Asia,  North  Africa  and  the  Middle  East,  in  order  to  facilitate  university 
modernisation,  mutual  learning  between  regions  and  peoples,  and  understanding  between 
cultures.  Linguistic  training  is  usually  part  of  such  projects,  and  in  2004-2006  two  targeted 
cooperation in the field of language teaching. Cooperation programmes with the US, Canada, 
Japan, Australia and New Zealand also supported 6 projects for the development of language 
curricula. 

5.1.5.  Adult language learning 

The Action Plan called for affordable language provision for adults, e.g. in-company training, 
adult education courses or informal learning linked to cultural activities. 

Belgium,  Czech  Republic:  Language  Vouchers  and  language  resources  in  the 

Internet 

To  attend  language  courses  is  not  solely  a  question  of  sufficient  motivation  and  time,  but  also  of 
economic resources. To encourage lifelong language learning, Belgium and the Czech Republic are 
introducing  'vouchers'  systems.  which  are  co-financed  by  the  state,  employers  and  users  and  are 
reported to have significantly increased the demand for language courses among adults.  

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Internet  sites  are  one  way  of  promoting  language  learning  among  adults.  In  Belgium,  “Word  wat  je 
wil”11  is  a  database  containing,  among  other  things,  all  official  and  private  language  courses.  In  the 
Czech Republic, a “National Language Gateway” is currently being developed. This site will offer on-
line language courses, free of charge, conforming to the CEFR. 

Ireland, Slovenia and Spain: language learning opportunities for adults 

In Ireland and Slovenia there has been a healthy level of demand among adult learners for language 
learning  opportunities,  and  there  have  been  many  local  initiatives  to  meet  that  demand  through  the 
network of libraries, cultural associations, language clubs and adult education. 

Language schools for adults have been a characteristic of the Spanish educational system for many 
years, both regionally and nationally. They offer, on a network basis, 20 different languages at basic 
and intermediate level conforming to the CEFR and have proven to be financially viable.  

In  order  to  encourage  more  adults  to  learn  languages,  the  Commission  is  developing  a  web 
portal  (I.4.1)  providing  easy  access  to  information  resources  and  guidance  for  the  general 
public and for language professionals. 

5.1.6.  Language learners with special needs 

Language  teaching  is  now  starting  earlier  and  is  included  in  the  core  curriculum  of 
compulsory  education  in  most  Member  States,  but  it  also  needs  to  consider  students  with 
special needs. The Commission financed a study on “Special educational needs in Europe, the 
teaching and learning of languages” (I.5.1), which concluded that there was no evidence for 
excluding  special  needs  students  from  learning  languages,  and  pointed  out  that  learning 
languages went beyond communicative performance and enhanced personal and educational 
development,  also  encompassing  European  citizenship  values.  The  study  looked  at  teaching 
practices  and  recommended  catering  for  students  with  special  needs  through  individual 
educational  plans  and  team-teaching  (language  teacher  and  special  needs  teacher)  and 
providing appropriate teacher training as part of mainstream training for prospective teachers. 

Austria and Estonia: Sign Language Recognised as Minority Language 

In  these  two  countries,  sign  language  has  recently  been  recognised  as  a  minority/official  language. 
Official recognition has been followed by research programmes, support for a centre for professional 
qualifications and the launching of courses for the education of sign language teachers. 

5.1.7.  Range of languages 

Member States were invited to teach the widest possible range of languages, at all educational 
levels.  The  range  of  languages  on  offer  is  unevenly  distributed.  On  the  one  hand,  some 
Member  States  offer  a  very  limited  range  of  languages  (mainly  English,  with  a  few  other 
languages  in  specific  curricula  in  border  areas  or  for  migrant  communities).  On  the  other 
hand, Member States that offer a free choice of languages report difficulties in implementing 
this policy in schools. Families are often not aware of the benefits of learning more than one 
language.  Curricular  reforms  aimed  at  widening  the  range  of  languages  on  offer  should  be 
backed up by adequate information. 

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http://www.wordwatjewil.be. 

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Austria, France, Germany, Greece: teaching the languages of the neighbours  

In  2003,  the  province  of  Lower  Austria  (Austria)  launched  a  plan  called  “Sprachoffensive”,  aimed  at 
teaching  Czech,  Slovak  and  Hungarian  to  13 000  students.  A  regional  “Centre  of  Competence”  was 
also  created  to  offer  language  expertise  and  guidance  to  schools  and  companies  working  across 
borders.  

France  has  succeeded  in  raising  by  10%  the  number  of  students  choosing  German  by  running 
information  campaigns  and  establishing  bilingual  classes.  This  example  indicates  the  potential  for 
changing attitudes if the right measures are put in place.  

In Thrace, a bilingual Greek/Turkish curriculum was already available for the Turkish minority, but in 
2006-2007  a  pilot  programme  to  teach  Turkish  in  some  mainstream  upper  secondary  schools  was 
introduced with a view to increasing cross-border contacts.  

5.2. 

Strategic Area 2: Better Language Teaching 

5.2.1.  The language-friendly school 

Schools and educational institutions were invited to adopt a holistic approach to the teaching 
of  languages,  making  connections  between  teaching  of  the  mother  tongue,  the  language  of 
instruction where different, foreign languages and the languages of migrant communities. The 
Commission  promoted  this  approach  by  supporting  Comenius  school  projects  in  this  field 
(II.1.1) 

Finland: The languages of newcomers as teaching languages 

The Finnish education system supports the maintenance and development of the mother tongues of 
immigrants  to  ensure  functional  bilingualism.  In  2003,  instruction  in  52  languages  was  offered. 
Russian, Somali and Albanian were the most widely taught languages as immigrant mother tongues. 

Italy: the “Talking the World” initiative 

This  initiative  aims  to  promote  the  concept  of  the  language-friendly  school  through  a  series  of 
grassroots activities involving teachers and networking schools. The Action Plan has been used as a 
basis for discussion and inspiration. 

5.2.2.  The Languages Classroom 

In  order  to  support  innovative  methods  for  teaching  and  learning  languages,  language 
products  developed  under  the  Socrates  and  Leonardo  Programmes  (II.2.2)  have  been 
disseminated through a variety of initiatives, and this dissemination will continue in the LLP. 
The  eTwinning  initiative,  enabling  schools  to  work  together  through  the  Internet,  has 
strengthened  language  abilities  and  promoted,  to  some  extent,  multilingual  comprehension 
and the use of the language of the partner school (II.2.3).  

5.2.3.  Language teacher training 

Member  States  are  paying  increased  attention  to  teacher  training,  especially  as  a  means  of 
ensuring  effective  language  teaching  at  primary  level  and  through  CLIL.  Although  in  many 
Member  States  language  teachers  are  not  obliged  to  spend  a  period  abroad  in  the  country 
whose  language  they  teach,  the  need  is  widely  recognised  among  practitioners  and  teacher 
trainers, who make use of the mobility schemes offered by European educational programmes 
(Erasmus, Comenius, Leonardo) to improve their language skills. 

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Austria,  Czech  Republic,  Germany  and  Poland:  dual  training  for  language 

teachers 

In these countries, initial teacher training provides graduates with qualifications in two different subject 
areas,  for  instance  languages  plus  another  subject.  This  system  enhances  the  language  skills  of 
teachers and helps to prepare future CLIL teachers. 

Luxembourg: training multilingual teachers 

Primary school teachers are trained to be able to teach in the 3 national languages Luxembourgish, 
German and French as well as to teach non-linguistic subjects in one of these languages. Secondary 
school  language  teachers  must  study  at  least  for  two  years  in  a  country  of  their  target  language. 
Secondary school subject teachers must be able to teach in German and French. 

In  order  to  widen  access  to  language  teaching  schemes  in  the  Socrates  and  Leonardo 
Programmes, the Commission invited National Agencies to launch information campaigns on 
mobility  for  language  teachers  and  their  trainers  (II.3.1).  One  dissemination  project  in 
particular  was  dedicated  to  promoting  language  assistantships.  As  a  result,  the  share  of  the 
budget devoted to language assistantships rose to 26% in 2006, exceeding the target of 25% 
set in the Action Plan. In the LLP, assistantships are not limited to languages but are open to 
all  subjects,  with  a  special  emphasis  on  CLIL.  Where  Comenius  in-service  training  was 
concerned, 65% of the total number of applications related to languages. Between 2004 and 
2006,  more  than  15 000  language  teachers  received  training  abroad  through  Comenius,  765 
adult education language teachers through Grundtvig and 1820 vocational education teachers 
through Leonardo.  

The Commission also financed a study to define a Frame of Reference for a European Profile 
for Language Teacher Education (II.3.2). The study laid down basic requirements to create a 
common profile, calling in particular for specific language teacher training at higher education 
level,  with  a  compulsory  period  of  training  in  another  country  and  adequate  training  in 
methodology and intercultural skills. The study is currently being examined by the European 
Language Inspectors Network (IV.2.1) and its conclusions will be debated and disseminated 
at a symposium (II.4.2).  

5.2.4. 

Supply of language teachers 

Language  teachers  and  indeed  all  teachers  still  face  significant  barriers  to  teaching  abroad. 
However,  some  degree  of  flexibility  exists.  Very  promising  experiments  have  been 
undertaken  in  border  regions,  sharing  teachers  across  borders  or  through  exchange 
programmes. The Commission financed a study on “Detecting and Removing Obstacles to the 
Mobility  of  Foreign  Language  Teachers”  (II.4.1),  which  reported  on  tools  facilitating 
language  teacher  mobility  and  on  the  main  obstacles  encountered.  It  recommended  that  a 
mobility strategy be established at European level for language teachers to encourage bilateral 
and multilateral exchanges, support exchanges of prospective teachers and young teachers in 
particular,  encourage  the  recognition  of  qualifications  acquired  through  mobility,  organise 
workshops  and  on-site  working  visits  abroad  as  a  form  of  teacher  training,  and  set  up  a 
clearing system to match supply and demand across countries and institutions.  

Estonia,  Poland  and  other  central  and  eastern  European  countries:  Re-

qualification of language teachers  

During  the  past  ten  years  Poland  and  Estonia,  along  with  other  central  and  eastern  European 
countries, have established teacher training schemes to reconvert / retrain surplus language teachers, 

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in  particular  from  Russian  to  English.  Additional  measures  have  been  taken  to  re-qualify  language 
teachers who do not hold the appropriate degrees. These actions prove that it is technically possible to 
widen the range of languages in the curriculum if the political decisions are taken and they match the 
demand. 

Romania: post-graduate distance training for teachers in rural areas  

A  project  supported  by  the  Romanian  government  and  the  World  Bank  aims  to  enhance  teacher 
training  for  those  living  in  rural  areas.  Four  universities  have  implemented  distance-learning  post-
graduate qualification courses in French and English, developed by a multidisciplinary team and open 
to  all  teachers  who  wish  to  teach  languages.  Courses  lead  to  official  certification  and  are  integrated 
with other distance-learning teacher training schemes. In 2007 two hundred teachers of English and 
French will obtain their professional conversion diplomas. 

5.2.5.  Testing language skills 

There has been a clear trend to reform national curricula in order to bring them into line with 
the Common European Framework of Reference of Languages (CEFR), notably at secondary 
level,  and  final  examinations  have  been  revised  accordingly.  Teachers  at  all  levels  of 
education  are  making  increasing  use  of  the  European  Language  Portfolio  as  a  teaching  aid, 
although  educational  materials  are  often  not  suitable  for  this  approach.  The  extent  of  the 
changes  brought  into  the  language  classroom  by  the  use  of  the  CEFR  was  discussed  at  a 
Policy Forum organised by the Council of Europe in February 2007, with the participation of 
the Commission (II.6.4). 

Several countries: use of CEFR levels to define language attainment  

Austria,  Belgium,  Czech  Republic,  Estonia,  France,  Germany,  Italy,  Lithuania,  Luxemburg,  Poland, 
Romania,  Spain,  and  the  United  Kingdom  will  start,  have  started  or  plan  to  develop  the  process  of 
reshaping  curricula  and  relating  the  school-leaving  examinations  in  foreign  languages  to  the  CEFR 
levels.  This  allows  objective  tests  of  language  ability,  as  the  CEFR  covers  communicative 
competences in all languages.  

The Netherlands: the linguistic competence profile  

In the Dutch education system, the CEFR is increasingly setting the standards for defining language 
skills. Higher professional degree programmes and vocational education (MBO) have also adopted it 
to  define  competence  profiles.  European  Language  Portfolios  (ELP)  have  been  developed  and 
validated for nearly all types of schools. An electronic ELP is currently being developed for the broad 
target audience of everyone learning languages. 

France, Italy and Luxemburg: external language certification 

In order to make more transparent the level of language competences acquired by students at the end 
of  secondary  education,  the  French  education  system  is  developing  language  certification  in 
cooperation with the institutions that promote the languages of partner countries. A similar project in 
Italy, “Lingue 2000”, now allows students to obtain external certification provided by accredited foreign 
institutions.  

In  Luxembourg,  students  in  their  two  last  years  of  secondary  school  can  have  their  linguistic  skills 
assessed by accredited foreign institutions. This encompasses languages taught at school as well as 
those  that  are  not  part  of the  curriculum.  This  certification will  form  part  of  the  students’  end-of-term 
reports. 

As  requested  by  the  Barcelona  European  Council,  the  Commission  is  working  on  the 
development of a European survey of language competences (II.6.1), to be held for the first 

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time in 2010 in order to obtain comparable information on the level of competences acquired 
in two languages at the end of compulsory schooling in Europe.  

The  European  Commission  also  used  CEFR  to  improve  transparency,  information  and 
guidance on vocational training policies. A European Language Passport, based on the CEFR 
and forming part  of  the European  Language Portfolio, has been included in the  Europass, a 
single  framework  for  qualifications  (II.6.2).  Since  February  2005,  almost  50 000  language 
passports have been generated online, with more than 181 806 blank templates downloaded to 
be completed off-line. The Europass CV, including a language section, is even more popular: 
so  far,  more  than  one  million  CVs  have  been  generated  on-line  and  about  1.7  million  have 
been downloaded. 

In order to gather and make available information on the use of language certificates and their 
nature  and  quality,  the  Commission  financed  a  study  on  an  ‘Inventory  of  Language 
Certification in Europe’ (II.6.3). On the basis of the findings, the authors recommended that 
the  Commission  should  work  with  the  relevant  stakeholders  to  improve  the  quality  of  the 
development  and  validation  of  tests  by  providers,  to  set  quality  standards  and  a  code  of 
practice for language certificates in Europe, and to support collaboration between certificate 
providers in different countries and with general education institutions. 

5.3. 

Strategic Area 3: Building a Language-Friendly Environment 

5.3.1.  An inclusive approach to linguistic diversity 

For  the  first  time  at  Commission  level,  the  Action  Plan  has  set  out  a  vision  for  language 
policies going  beyond  foreign  language teaching and encompassing all languages spoken in 
Europe,  whether  official,  regional  or  minority  languages  or  languages  spoken  by  immigrant 
communities. In order to bring together educational stakeholders from regional and minority 
languages and help them exchange good practices, a European Conference on “Regional and 
Minority Languages in Education Systems” was organised in 2006 (III.1.1). The situation of 
regional and minority languages in the countries that joined the European Union in 2004 was 
surveyed by  the Euromosaic Report  (III.1.2). An update  for Romania and Bulgaria is under 
way.  

This new approach to languages and linguistic diversity is fully reflected in the LLP, where 
all languages are eligible for funding, including regional and minority languages (III.1.3). The 
Commission  has  made  a  special  effort,  through  European  conferences,  local  seminars  and 
network  meetings,  to  ensure  that  regional  and  minority  language  stakeholders  are  well 
informed on how to access mainstream programmes, especially the LLP. 

In  2004-2006,  the  Culture  2000  Programme  supported  150  translation  projects  to  promote 
cultural  and  linguistic  diversity  in  Europe.  Promotion  of  cultural  and  linguistic  diversity  is 
also the cornerstone of the new Culture Programme for 2007-2013. 

This  inclusive  vision  is  in  line  with  the  European  Charter  for  Regional  and  Minority 
Languages, which has been ratified by 22 Council of Europe Members, among them 14 EU 
Member  States.  As  a  general  rule,  Member  States  provide  partial  or  total  instruction  in 
recognised  minority  languages.  Promising  practices  have  been  reported  in  the  promotion  of 
exposure or immersion in different local languages, especially for children.  

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Finland/Norway/Sweden: Bilingual schools in border areas  

A  network  of  twinned  towns  supports  language  learning  through  cooperation  between  Finnish-, 
Norwegian-  and  Swedish-speaking  schools  across  the  borders.  Some  schools  have  developed  a 
common curriculum and also promote the teaching of neighbouring languages through CLIL and the 
exchange of teachers. 

Italy/Austria/Slovenia: the Cromo project 

Cromo  is  a  cross-border  project  (2005-07)  financed  by  the  national  authorities  of  Austria,  Italy  and 
Slovenia.  It  helps  build  bridges  among  border  communities  in  Friuli-Venezia-Giulia  (Italy),  Carinthia 
(Austria)  and  Slovenia  by  developing  common  tools  in  the  form  of  a  European  Language  Portfolio 
supplement  to  help  secondary  school  learners  develop  linguistic,  meta-cognitive  and  intercultural 
competences to foster intercultural dialogue. 

Slovakia,  Danube  countries:  promoting  the 

languages  and  cultures  of 

neighbouring countries 

The  international  association  “The  Danube”  brings  together  tourism  offices  from  the  countries  along 
the Danube. Every year, it devises a common theme for action to promote the culture and language of 
each country. 

Sweden: Multicultural education in pre-school establishments 

In March 2005, a new objective was introduced in the curriculum for pre-school education, to support 
children with  a  mother  tongue  other  than  Swedish  in  order  to  strengthen  their  language  and  identity 
development. The government bill proposing the change also emphasised the need for bilingual and 
cultural  support  staff  as  well  as  increased  support  for  producing  educational  material  in  languages 
other than Swedish.  

United Kingdom: Educating parents to pass on family bilingualism 

In  Wales,  a  programme  called  Twk  (Growth)  has  been  launched  to  revitalise  the  use  of  Welsh.  Its 
information campaign targets the health sector, maternity hospitals, parents and future parents on the 
advantages of bilingualism and encourages the use of Welsh at home with children. Another strand of 
the  information  campaign  encourages  the  use  of  Welsh  at  the  workplace:  Saint  Dwynen  cards  and 
‘Working  Welsh’  badges  are  meant  to  identify  Welsh  speakers  at  the  workplace  and  encourage  the 
use of Welsh when approaching them.  

5.3.2.  Building language-friendly communities 

In  line  with  the  Action  Plan  recommendations,  town  twinning  projects  have  supported 
informal language learning and linguistic diversity to a considerable extent (III.2.1). Three of 
the  eleven  best  practices  selected  in  the  Golden  Stars  Awards  2006  included  activities  to 
promote linguistic and cultural diversity. In the Programme “Europe for Citizens 2007-2013”, 
cultural and linguistic diversity is one of the horizontal features of all actions over the entire 
duration of the programme.  

On the media side, a study on the needs and practices of the audiovisual industry in dubbing 
and sub-titling was launched by the Commission (Directorate General for Information Society 
—  Media  Programme)  early  in  2007  (III.2.2).  By  the  end  of  2007  the  study  will  have 
surveyed  the  European  market  and  come  up  with  recommendations  to  promote  linguistic 
diversity and facilitate the movement of audiovisual productions among European countries.  

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5.3.3. 

Improving the supply and take-up of language learning 

The  Action  Plan  called  for  those  actions  of  the  Socrates  Programme  targeting  adults  to 
promote language learning and linguistic diversity. In response, the Grundtvig action (III.3.1) 
supported  14  projects  and  2  networks  to  develop  training  tools  and  courses  for  language 
teachers.  Six  focused  on  migrant  and  ethnic  communities.  In  all,  300  learning  partnerships 
promoted languages in adult education, with 105 focusing on migrant and ethnic communities 
(33% of the total number of partnerships). 

In  the  LLP,  one  of  the  priorities  for  Grundtvig  multilateral  projects  is  “Developing  adult 
learning opportunities for migrants in relation to linguistic, social and cultural integration.” 

The  European  Language  Label  (III.3.2)  has  been  reinforced  with  new  activities  aimed  at 
motivating adults to learn languages (a prize for the European Language Teacher / Student of 
the  Year  and  information  campaigns  on  language  learning,  especially  the  European  Day  of 
Languages). These activities were piloted in 2005 and 2006 and are now regular activities in 
the LLP.  

A survey of the diversity in the supply of language teaching (III.3.3) in the EU over the years 
1999-2005 will be completed by the end of 2007. It will determine whether there have been 
changes  in  the  number  of  languages  taught  and  in  the  number  of  pupils  studying  languages 
and will identify trends.  

5.4. 

A Framework for Progress  

5.4.1.  Better-informed decisions 

This section looks at actions to ensure the sharing of information and good practices between 
the Commission and Member States and to chart new policy areas.  

With  a  view  to  sharing  good  practices  and  discussing  language  issues  for  joint  actions,  a 
Working Group on Languages has been created to follow up the Action Plan and to help the 
Commission achieve the objectives of Education & Training 2010, the educational strand of 
the Lisbon Strategy (IV.1.1). 

A study into ways of motivating citizens to learn languages (IV.1.2) has led to the “Lingo!” 
publication, which presents good practices in the area of motivation. The study outlined key 
motivation issues, such as supporting language promotion networks at all levels, giving more 
attention  to  adult  learning,  especially  in  non-formal  and  informal  settings,  and  using  media 
and marketing techniques to draw attention to languages. 

Another study into the costs of non-multilingualism (IV.1.3a) was abandoned as such, but was 
partially taken up again by a more extended study on the “Effects on the European Economy 
of Shortages of Foreign Language Skills in Enterprise” (IV.1.3.b), which found that a lack of 
language skills caused a significant loss of business and recommended support for businesses 
to improve their management of language skills, through developing language skills available 
within their company, providing training for employees and work experience opportunities for 
foreign  students  or  employees,  and  participating  in  international  business-to-business 
exchanges. Business-education links should also be improved, and the existing language skills 
of children of migrant workers should be better valued and developed, alongside the national 
language of the host country. 

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Multilingualism  issues  in  research  were  taken  up  by  two  projects  funded  by  the  Sixth 
Framework  Research  Programme  (IV.1.4).  The  Seventh  Framework  Research  Programme 
also  supports  linguistic  diversity  in  the  area  devoted  to  socio-economic  sciences  and  the 
humanities.  

The  European  Eurydice  network  published  in  2005  a  volume  on  “Key  Data  on  Teaching 
Languages  at  Schools  in  Europe”  (IV.1.5),  which  provided  a  baseline  for  the  state  of 
language provision in 2003. A second issue covering the period 2004-2006 will be released 
towards the middle of 2008 to permit statistical comparisons and trend analysis. 

Details  of  how  programmes  in  the  field  of  education,  training,  youth,  media  and  culture 
promoted  languages  in  2004-2006  (IV.1.6)  are  given  in  the  relevant  sections  of  the  present 
document.  In  addition,  it  should  be  noted  that  the  Youth  Programme  involved  roughly 
1 000 000  young  people  and  supported  the  exchange  of  around  6 000  voluntary  workers. 
Linguistic  preparation  was  supported  and  even  compulsory  for  the  European  Voluntary 
Service  strand.  Moreover,  one  of  the  general  objectives  of  the  new  Youth  in  Action 
Programme (2007-2013) is the recognition of cultural, multicultural and linguistic diversity in 
Europe and the promotion of the informal learning of languages.  

5.4.2.  More effective information sharing between practitioners 

In  order  to  promote  the  exchange  of  good  practice  to  improve  the  quality  of  language 
teaching,  a  European  Network  of  Inspectors  of  foreign  language  education  and  training 
(ELIN)  was  established  in  2006  (IV.2.1).  The  network  has  so  far  focused  on  three  aspects: 
support  of  school  leadership  for  foreign  language  teaching,  initial  and  in-service  training  of 
teachers,  and  the  impact  of  inspection  systems  and  practices.  The  Arion  scheme,  which 
supports  study  visits  by  educational  stakeholders,  organised  36  study  visits  on  language 
teaching, involving nearly 400 participants, including language teachers, headmasters, policy 
makers and a significant number of language inspectors (II.3.3). The Arion scheme continues 
under the LLP and particular attention will be given to language-oriented activities. 

5.4.3.  Clear procedures for the follow-up of the Action Plan 

To  ensure  a  durable  impact,  the  Action  Plan  objectives  have  been  taken  forward  by  the 
Lifelong  Learning  Programme  2007-2013  (LLP)  (IV.3.1).  The  promotion  of  language 
learning  and  linguistic  diversity  is  a  general  objective  of  the  LLP,  which  is  reflected  in  the 
priorities of the specific programmes addressing schools (Comenius), universities (Erasmus), 
vocational  training  (Leonardo)  and  adult  education  (Grundtvig).  Specific  programmes  are 
complemented  by  a  cross-cutting  activity  for  languages  (Key  Activity  2  Languages).  All 
languages are eligible: official languages, regional, minority, and migrant languages and the 
languages of major trading partners.  

6. 

CONCLUSION 

The  results  of  the  Action  Plan  are  encouraging.  The  Commission  —  by  and  large  —  has 
completed  its  assigned  tasks  on  time.  The  Member  States  have  made  efforts  towards  a 
considerable number of goals set out in the Action Plan. Other tasks set by the Action Plan 
call  for  a  long-term  commitment,  to  which  no  deadline  can  be  put.  Although  the  general 
trends are positive, the situation varies from country to country, since the point of departure 
and the initial policy approach were different in each Member State. Additional efforts by all 

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stakeholders concerned will help sustain these trends and consolidate the reforms launched in 
the Member States.  

Whereas many of the Action Plan's recommendations have been taken up at national level, a 
limited  number  will  need  additional  efforts  in  order  to  achieve  the  intended  impact  —  in 
particular  to  extend  language  teaching  to  all  educational  paths  (including  vocational 
education), to increase the variety of languages taught, to promote language-friendly schools, 
to exploit the potential of adult education and informal learning, and to raise the motivation to 
learn languages. 

The  Commission  will  continue  to  support  Member  States  in  their  efforts  to  improve  the 
quality  of  language  teaching,  to  widen  the  range  of  languages  taught  and  to  promote 
language-friendly schools. On the learning side, further action is needed to raise awareness of 
the  importance  of  learning  more  languages,  alongside  initiatives  to  motivate  students  and 
adults to take up languages, also through informal learning. Most of the actions recommended 
by the Action Plan targeted initial education and related teacher training. Emphasis could now 
be put on adult language learning, widening the range of stakeholders to include the business 
sector, continuous vocational training, and informal language learning through the media and 
cultural activities.  

The  European  programmes  in  the  field  of  education,  culture,  youth  and  civil  society,  in 
particular  the  Lifelong  Learning  Programme,  are  powerful  tools  that  complement  national 
policies  by  adding  a  European  dimension  to  learning  activities.  Their  support  for 
multilingualism has been strengthened in the new programme generation for 2007-2013, both 
by setting language learning and linguistic diversity as a general objective and by increasing 
the budget devoted to linguistic actions. The Commission will follow up their implementation 
so to ensure their strategic use in those areas where further work is needed. At the same time, 
the  Commission  will  support  the  development  of  an  Indicator  of  Linguistic  Competence  to 
provide  Member  States  with  a  comparative  basis  for  their  policy  choices.  New  possibilities 
will be explored to promote multilingualism through other policies such as social and regional 
policies.  Future  action  should  increasingly  involve  all  stakeholders  concerned  and  lead  to  a 
long-term partnership for multilingualism.  

The  Commission  is  currently  reviewing  its  approach  to  multilingualism  in  order  to  support 
Member  States  under  the  Lisbon  Strategy  for  Growth  and  Jobs  and  in  line  with  the 
suggestions  made  by  the  European  Parliament  during  the  hearings  of  Commissioner  Orban. 
The  policy-shaping  process  will  involve  a  broad  range  of  stakeholders  through  an  on-line 
consultation.  It  will  be  carried  out  in  close  partnership  with  the  other  European  Institutions 
and with Member States, which will discuss new developments in multilingualism policy at a 
ministerial  conference  in  February  2008.  The  findings  of  the  present  document,  along  with 
other  feedback  such  as  the  recommendations  of  the  High  Level  Group  for  Multilingualism, 
will  feed  into  this  debate.  This  consultation  process  will  lead  to  a  new  Commission 
Communication  —  planned  for  September  2008  —  setting  out  a  broader  approach  for 
multilingualism policy. 

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