Proposal for a Council Recommendation on a comprehensive approach to the teaching and learning of languages

In May 2018, the European Commission published a set of initiatives aimed at strengthening its work in youth, education and culture.¹ Among these measures was a proposal for a Council Recommendation on a comprehensive approach to the teaching and learning of languages.² It was accompanied by an Annex and a Working Document, giving the background thinking in greater detail. The following extract sets out the reasons for the initiative and the proposed actions. The proposal has not yet been discussed by the Council. [Editor’s note]

THE COUNCIL OF THE EUROPEAN UNION

Having regard to the Treaty on the Functioning of the European Union, and in particular Articles 165 and 166 thereof,

Having regard to the proposal from the European Commission,

Whereas:

1. 1. In the Communication “Strengthening European Identity through Education and Culture”³ the European Commission sets out the vision of a European Education Area in which high-quality, inclusive education, training and research are not hampered by borders; spending time in another Member State to study, learn or work has become the standard; speaking two languages in addition to one’s mother tongue is far more widespread; and people have a strong sense of their identity as Europeans, as well as an awareness of Europe’s cultural heritage and its diversity.

2. 2. At the informal working session of the Gothenburg Summit for fair jobs and growth, Heads of State or Government discussed the role of education and culture for the future of Europe. The European Council Conclusions of 14 December 2017⁴ call on the Member States, the Council and the Commission, in line with their respective competences, to take work forward in this area.

3. 3. Language competences are at the heart of the vision of a European Education Area. With increasing mobility for education, training and work inside the Union, increasing migration from third countries into the Union, and the overall global cooperation, education and training systems need to reconsider the challenges in teaching and learning of languages and the opportunities provided by Europe’s linguistic diversity.

4. 4. Increasing and improving language learning could strengthen the European dimension in teaching.⁵ It could foster the development of a European identity in all its diversity, complementing local, regional and national identities and traditions and a better understanding of the Union and its Member States.

5. 5. Almost half of Europeans report that they are unable to hold a conversation in any language other than their mother tongue.⁶ The lack of language competences are a source of difficulty, hampering meaningful exchanges between public administrations and individuals across borders in the Union.⁷

6. 6. Only four in ten learners in secondary education reach the “independent user” level in the first foreign language, indicating an ability to have a simple conversation. Only one quarter attains this level in the second foreign language.⁸ A comparative analysis of languages in education and training⁹ showed that most Member States face challenges in ensuring appropriate learning outcomes in the field of languages. While challenges exist in all education sectors, they are particularly acute in vocational education and training where less emphasis is put on language learning.

7. 7. Limited language competences remain one of the main obstacles to benefit from the opportunities offered by the European education, training and youth programmes.¹⁰ Conversely, enhanced language competences will enable persons to benefit more from the opportunities the internal market offers, such as free movement of workers, as well as take a more informed and fair decision about opportunities in other EU countries.

8. 8. Foreign language skills provide competitive advantages for both businesses and job seekers – if they form part of a broader set of useful skills.¹¹ There is positive correlation between foreign language skills and the likelihood of being in employment.¹² However, the results from the latest Continuing Vocational Training Survey (CVTS 2016) show that only 7.9% of companies (that provide training for their employees) send their employees for language courses (ranging from 22.1% in Slovakia to 0.5% in Ireland).

9. 9. To sustain current...