second-language learning in canada’s universities 2 1l common · second-language learning...
TRANSCRIPT
www.officiallanguages.gc.ca
Second-language learning in Canada’s universities
Two languages, a world of opportunities
2 espace commun common space 1O f f i c i a l
Languages
l a n g u e sofficielles
To reach the Office of the Commissioner of Official Languagesor to obtain a copy in an alternative format, dial toll-free 1-877-996-6368. www.officiallanguages.gc.ca
© Minister of Public Works and Government Services Canada 2009 Cat. No.: SF31-100/2009E-PDFISBN: 978-1-100-13974-6
The Commissioner of Official Languages would like to acknowledge the important work of Mark Goldenberg, the primary consultant for the study, without whom such a comprehensive study and report could not have been realized. The Commissioner would also like to thank the members of the study’s advisory committee for their precious insight, guidance and advice, as well as those who participated in the focus groups and interviews.
III
Summary
Knowledge of both our official languages is important for young Canadians as they prepare for their future.
Globalization and the knowledge economy are placing a premium on new skills, including language skills and openness to other cultures. The ability to speak Canada’s two official languages, and other languages as well, is increasingly valued in terms of employment and career opportunities and also for personal development and enrichment.
Second-official-language learning is also essential to Canadian identity and citizenship, and for fostering better understanding among Canadians. And, in the context of public service renewal, the Government of Canada needs access to a larger pool of bilingual candidates in order to ensure that the public service reflects Canada’s linguistic and regional diversity.
Canada needs to provide a true continuum of second-language learning opportunities for all Canadians from elementary school through to the labour market. This continuum is an important and integral part of preparing our young people for the future to be productive citizens of their own country and citizens of the world.
While extensive knowledge has been accumulated about second-language learning at the elementary and secondary levels in Canada, less is known about second-language learning at the university level—the extent of current second-language learning opportunities, key issues and challenges, and what is effective.
These considerations led the Office of the Commissioner of Official Languages (OCOL) to undertake a major study of second-language learning in Canada’s universities. The study included an in-depth survey of institutions; focus groups with students and with professors and administrators; and interviews with senior university officials, language-learning experts, government representatives, and private-sector, education, and other organizations. An advisory committee was also established for the study, with representatives from universities, governments and other interested organizations.
This study found that, while many universities in Canada offer a range of second-language learning programs and courses, there are serious gaps and unmet needs.
In particular, opportunities for intensive second-language study are limited—for example, to enrol in immersion programs, to take subject-matter courses taught in the second language or to take second-language courses tailored to different academic disciplines.
Moreover, collaboration among English- and French-language institutions in Canada to promote second-language learning, including exchange opportunities between institutions, is weak, and university second-language policies and requirements are generally minimal or non-existent.
Students believe second-language learning is important for them for a variety of reasons—for career and employment purposes, certainly, but also for personal development—and are looking for intensive and more varied opportunities to develop their second-language skills.
Key findings about what works and what is effective in second-language learning include the following:
Content• -based learning can be very effective and provide good results.
Opportunities to use and practice the second language •outside the classroom and interact with persons from the other language group are critical.
Good teachers, smaller classes and learning supports such •as tutors and help with grammar and writing are important.
Key success factors for structuring effective second-language •programs include financial and funding issues; leadership and commitment from the highest levels of university administration; and planning, organization and coordination.
The results of the study point to several broad directions and areas for attention.
First, universities need to improve opportunities for intensive second-language learning.
Second, minority-language institutions— English-language institutions in Quebec and French-language institutions in the other provinces—hold great potential to offer young Canadians such opportunities, and this potential needs to be better exploited.
Third, partnerships and collaboration among institutions, and the use of technology, offer much promise for doing more and for doing so more efficiently.
Fourth, a priority should be to expand exchanges and real-life opportunities for students to use their second language and interact with persons who speak that language.
Fifth, stronger university second-language policies and requirements should be part of an overall strategy to improve second-language learning at the university level in Canada.
IV
And lastly, more information, promotion and marketing activities are needed to better inform students about the advantages of second-language learning and the opportunities available to them.
A number of models or broad approaches were identified in the course of the study. These include study at an institution that teaches in the student’s second language and offers immersion in the second-language milieu; study at a bilingual institution; the use of partnerships with institutions that teach in the other language to enhance second-language learning opportunities; and tailoring second-language courses to academic disciplines, using subject-matter content and vocabulary to teach the second language.
The Commissioner of Official Languages is making a number of recommendations—to institutions, governments, and others—to improve second-language learning opportunities in Canada’s universities.
It is hoped that the results of this study will encourage governments, institutions and all interested parties to work together to improve second-language learning at the university level in Canada and better help young Canadians prepare for the future.
V
Table of conTenTS
1.IntroductIon . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1
2.Methodology . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 3
2.1 Advisory committee . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 3
2.2 Survey of institutions . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 3
2.3 Focus groups and key-informant interviews . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 3
2.4 Structure of the report . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 4
3.how IS cAnAdA doIng? . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 5
3.1 Access to regular second-language learning opportunities at university is generally good . . . . . 5
3.2 Access to intensive second-language learning opportunities is limited . . . . . . . . . . . . . . . . . . . . . . . 6
3.2.1 Students who want to study in their second language at university face special challenges or have limited opportunities to do so . . . 6
3.2.2 Access to immersion programs at the university level is very limited . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 8
3.2.3 Second-language courses linked to specific academic subjects are not widely available . . . . . . . . . . . . . . . . . . . . . . . . . . . . 9
3.2.4 Few institutions offer exchange opportunities within Canada . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 9
3.2.5 Second-language policies and requirements are weak or non-existent . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 10
4. IS there A deMAnd . . . And A reAl need? . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 11
4.1 why, according to students, are second-language learning opportunities at university important? . . . 11
4.2 Students have varied second-language learning needs that are not being met . . . . . . . . . . . . . . 11
4.3 there is both actual and potential demand for more second-language learning opportunities . . . . 12
4.4 there are economic and societal arguments for doing more . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 13
5. whAt workS . . . And whAt would work better? . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 15
5.1 Students were clear about what they like in current programs and what they would like to see . . . 15
5.2 language-learning experts identified several key success factors . . . . . . . . . . . . . . . . . . . . . . . . . . 16
5.3 Professors, administrators and government representatives identified important issues for the organization and delivery of second-language programs . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 16
5.4 All agreed on the importance of real-life opportunities to use the second language and interact with persons from the other language group . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 17
VI
6. key ISSueS And chAllengeS . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 18
6.1 costs and financing . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 18
6.2 French-language institutions outside Quebec . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 18
6.3 role and status of language departments; teaching approaches in universities . . . . . . . . . . . . . 19
6.4 Partnerships, collaboration and use of technology . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 19
6.5 continuity and coherence in second-language learning opportunities . . . . . . . . . . . . . . . . . . . . . . . 20
6.6 Marketing, promotion and information . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 21
6.7 Second-language learning and public administration . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 21
7. the wAy ForwArd . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 22
7.1 broad directions for the future and priority areas for attention . . . . . . . . . . . . . . . . . . . . . . . . . . . 22
7.2 Potential models and approaches . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 23
7.2.1 The other-language institution model . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 23
7.2.2 The bilingual institution model . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 24
7.2.3 The buffet model . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 24
7.2.4 The centre model . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 24
7.2.5 The partnership model . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 24
7.2.6 The targeting model . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 25
7.2.7 The tailoring model . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 25
7.3 Suggestions for possible next steps and future actions . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 25
7.3.1 Suggestions for action by universities . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 25
7.3.2 Suggestions for action by governments . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 26
7.3.3 Suggestions for action by the Commissioner of Official Languages . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 27
7.3.4 Suggestions for action by other parties . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 27
8. concluSIon . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 28
9. recoMMendAtIonS . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 29
9.1 First steps . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 29
9.2 recommendations for governments . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 29
9.3 recommendations for universities . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 30
9.4 recommendations for further study and research . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 31
APPendIx: MeMberS oF the AdvISory coMMIttee . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 32
1
1. InTroducTIon
Society faces no greater challenge than that of educating and preparing its young people for the future—for work and career, for social interaction, for cultural and leisure activities, for becoming contributing and productive citizens of their own country and citizens of the world.
For Canada and for Canadians, meeting this challenge has an important linguistic dimension: ensuring that all Canadians have the opportunity for a first-class education in their own first official language, that they have the opportunity as well to learn the other official language and that newcomers to Canada have the opportunity to learn the country’s two official languages.
While extensive knowledge has been accumulated about second-language learning at the elementary and secondary levels in Canada, less is known about second-language learning at the university level—the extent of current second-language-learning opportunities, key issues and challenges, and what is effective.
This report presents findings and results from a major study on second-language-learning opportunities in Canada’s universities undertaken in 2008 and 2009 by the Office of the Commissioner of Official Languages (OCOL).
The objective of the study was to expand the knowledge base about opportunities for students to develop their second-official-language skills while pursuing higher education and preparing for their working career.
Related objectives were to identify challenges and barriers, potential models and approaches, and ideas on how to improve second-language learning opportunities at the university level.
Interest in this question reflects the new socioeconomic realities of globalization and the skill demands of the knowledge-based economy, including language skills and openness to other cultures.
It also arises in part from the large numbers of graduates of immersion and other second-language programs that are currently studying or preparing to study at the post-secondary level.
As well, for the Government of Canada, there is a compelling need, as part of the renewal of the public service, to have access to a larger pool of bilingual recruits.
OCOL’s interest in this area also reflects the amendments to the Official Languages Act adopted by Parliament in 2005 that strengthen the legislative commitment of the Government of Canada to take positive measures and work with other interested parties to promote Canada’s linguistic duality. This includes second-language learning and greater understanding between Canada’s two official-language communities.
It should also be noted that the House of Commons Standing Committee on Official Languages has recently tabled a report entitled 5,000 Bilingual Positions To Be Filled Every Year: The Role of Postsecondary Institutions In Promoting Canada’s Linguistic Duality in which it examines questions relating to second-language learning at Canada’s universities and makes a number of recommendations. 1
The scope of this study included French as a second language across Canada, and, in Quebec, English as a second language. This is what is meant by the term second language as it is used in this report.
It is hoped that this study will encourage institutions, governments and other interested parties to work together to improve second-language learning in Canada’s universities.
More than 40 years ago, the Royal Commission on Bilingualism and Biculturalism underlined in its report the importance of second-language learning for Canada and for Canadians.
This year, 2009, marks the 40th anniversary of the Official Languages Act. The time has come for Canada to ensure that a true continuum of second-language learning opportunities is available for all Canadians from elementary school through to the labour market, as an important and integral part of meeting the challenge of preparing our young people for the future.
1 House of Commons Standing Committee on Official Languages, 5,000 Bilingual Positions To Be Filled Every Year: The Role of Postsecondary Institutions In Promoting Canada’s Linguistic Duality, http://www2.parl.gc.ca/HousePublications/Publication.aspx?DocId=3999183&Mode=1&Parl=40&Ses=2&Language=E.
2
In 40 years, Canada has made significant progress in terms of individual bilingualism [...].
This said, there are still various obstacles facing some Canadians who would benefit from learning English or French as a second language, or who would like to do so. This situation must be rectified.
In fact, at a time when Canada is facing a major world-wide economic and financial crisis, it is important to stress that economic and language issues, contrary to what some might say, are related. [...]
Consequently, any reversal by the federal government on its commitments to linguistic duality, or any slowdown by the provincial or territorial governments in implementing learning support programs for English or French as a second language may have significant repercussions on the country’s economy. The mistake could in fact be so serious that it would take years to correct.
The attitude of Canadians towards English or French second-language learning has never been so positive [...].
The federal government and its partners should build on this solid support and increase their support in a coherent manner for the implementation of a true official-language-learning continuum across Canada [...].
Graham Fraser, Commissioner of Official Languages, 2008–2009 Annual Report
Ensuring that this access exists across Canada is an important investment in our country’s future, as it enables young Canadians to acquire skills that will benefit them professionally, personally and culturally. In the current economic climate, language skills are an important factor in terms of professional mobility and competitive edge [...].
After 40 years of language policy, it is high time we eliminate the last roadblocks on this path.
Graham Fraser, Commissioner of Official Languages, Statement to the media for the launch of the 2008–2009 Annual Report
The royal commission on bilingualism and biculturalism
Most Canadians believe that a second language should be taught in the schools, and that it should be the second official language of the country [...].
Today, on all continents with the possible exception of North America, the study of a second language is as much taken for granted as the study of geography or mathematics [...].
Today’s child will live in a mobile and highly competitive society. What parent in 1968 can know with any certainty where his child will live in the year 2000, or even what career opportunities his child will have? It is apparent however that the child who learns English or French as a second language will have career opportunities that other children will not have.
Learning a second language is also a valuable educational experience because it brings the child into contact with a different culture. In Canada such contact can provide our children with knowledge and appreciation of the culture of many other Canadians [...]. Language learning can increase the number of bilingual Canadians and so reduce the language barrier in our country. It can play a significant role in increasing the mutual understanding of the two cultural groups [...].
The need for second language teaching cannot be seriously questioned.
The majority of Canadians are aware of this need and feel that all children should study French or English as a second language in school.
The national interest also underlines the need for Canadian school children to study the second official language.
The question therefore is not so much whether it should be taught but how it can be better taught.
Royal Commission on Bilingualism and Biculturalism, Book Two: Education
3
2. meThodology
2.1 Advisory committee
At the outset of the study, an advisory committee was established to provide overall guidance and advice. The Committee was co-chaired by the Commissioner of Official Languages, Graham Fraser, and the then President of the Association of Universities and Colleges of Canada (AUCC), Claire Morris.
Members of the Advisory Committee included senior representatives from universities, education and research organizations, the private sector, and the federal and provincial/territorial governments (see the Appendix for the list of members). Members brought to the Committee their own knowledge and experience in the language-learning area as well as the perspective of their organization.
The Advisory Committee met three times between March 2008 and April 2009. The Committee discussed the overall objectives, scope and methodology of the study, and provided input and advice on the development of the survey of institutions and the planning of the focus groups and key-informant interviews. It examined the results and findings from the study and discussed possible next steps and ways to move forward.
2.2 Survey of institutions
The study was undertaken in two phases.
In the first phase, a survey was conducted by the firm Ipsos Reid to gather information and data on the nature and extent of current opportunities for second-language learning in Canadian universities.
A detailed questionnaire was developed seeking information on the following:
university programs and courses to learn the second language; •
second-language courses that are linked to specific •academic disciplines;
the availability of courses in academic areas, other than •language and literature, taught in the second language;
language-learning supports and assistance, including exchanges; •
collaboration between institutions; and•
university second-language learning policies, requirements •and current initiatives.
The survey was sent to all 96 members of the AUCC, and was in the field between June 5 and September 22, 2008. A total of 84 institutions completed and returned the questionnaire, which represents an excellent response rate.
A few caveats should be pointed out regarding the data collected through the survey.
First, it should be noted that the survey contained a relatively large number of questions and dealt with issues that were often complex in nature—for example, making distinctions between courses for the teaching and learning of the second language, courses taught in the second language, immersion-type programs and second-language courses linked to specific academic subject areas.
Institutions therefore responded to the survey questions according to their own understanding and definition of these and other terms—for example, whether their programs and courses were at the beginner, intermediate or more advanced levels; or what constituted a second-language learning policy.
Nonetheless, within these limitations, the survey results provide an overall portrait of current second-language learning opportunities at universities in Canada and a wealth of information about them and related supports and activities.
2.3 Focus groups and key-informant interviews
The second phase of the study consisted of focus groups and key-informant interviews. The objective was to complement the quantitative data and information from the survey with more qualitative information based on the hands-on experience of students and university faculty and staff and the knowledge and perspective of language experts and other key persons and organizations.
Focus groups
OCOL contracted the firm Goss Gilroy to plan, organize and conduct the focus groups. A total of 15 focus groups were held in late fall 2008 and winter 2009. The focus groups were conducted separately with students and with university professors and administrators.
The focus groups included a mix of students, with a wide variety of experiences in second-language learning at the elementary and secondary levels and in the type of program or course they were taking or had taken at university. Separate interviews were also held with students who had dropped out of second-language programs at university. The faculty focus groups included second-language teachers, professors from different disciplines and program administrators.
4
A protocol was developed for use in the focus groups, with questions seeking information on factors motivating students to pursue second-language learning, what was effective in second-language programs, how they could be improved and related supports and activities.
The focus groups were held at eight institutions in different locations across Canada, selected to provide information from a variety of regional, linguistic and institutional perspectives and experiences. The eight institutions can be categorized as follows:
Bilingual institution (1): University of Ottawa / Université d’Ottawa•
English-language institutions outside Quebec (4): Memorial •University, Simon Fraser University, University of Alberta, University of Toronto
English-language institution in Quebec (1): McGill University•
French-language institution in Quebec (1): Université Laval•
French-language institution in Alberta (1): Campus Saint-Jean•
Key-informant interviews
During the same period, over 25 interviews were held with senior university officials, second-language learning experts, federal and provincial/territorial officials, and representatives from education and other relevant organizations.
An interview questionnaire was developed and shared with participants prior to the interview, identifying key areas of interest and concern. A set of general questions were asked of all persons being interviewed, and more specific questions were asked according to the responsibilities, knowledge or experience of the individual.
2.4 Structure of the report
The report is organized as follows:
First, the report outlines the current opportunities for second-•language learning offered at Canadian universities, and identifies gaps and shortcomings.
It then looks at the demand and need for increased and improved •opportunities.
The report goes on to examine what is known about what works in •second-language programs, how current programs could be improved, and key issues and challenges.
It then considers ways to move forward, proposing broad directions •and areas for attention, identifying potential models and approaches, and summarizing suggestions that were put forward in the course of the study as to next steps and possible future action by different parties.
The report concludes with a series of recommendations by the •Commissioner of Official Languages addressed to institutions, governments and other relevant parties.
5
3. How is Canada doing?The survey results, as well as information from the focus groups and interviews, lead to the conclusion that, while many universities in Canada offer a range of second-language learning programs and courses, there are important gaps and unmet needs.
3.1 Access to regular second-language learning opportunities at university is generally good
Overall, Canadian students have good access to what may be termed regular second-language learning programs and courses in universities across the country. In this context, “regular” means programs and courses that are designed to teach the second language, including linguistics, literature and cultural studies relating to that language.
The great majority of universities in Canada—three-quarters of institutions, in fact—offer these types of second-language learning programs and courses.
Most universities offer courses at all levels, from beginner to advanced; many offer a degree in linguistics or literature or both, and graduate programs as well.
Universities also offer students a wide variety of learning supports, such as language labs and language centres, personal or group tutoring, assistance with writing and access to online and other pedagogical tools.
Social and cultural activities include clubs, films and television, cultural evenings and discussion groups.
Almost 74% of universities offer French second-language (FSL) programs •and courses (62 of 84 institutions).
FSL programs and courses are offered at these institutions at the beginner (94%), •intermediate (89%) and advanced (85%) levels.
Thirteen of 17 universities in Quebec offer English second-language (ESL) programs •and courses. Nearly all universities that do so (12 institutions) report offering ESL at the beginner, intermediate and advanced or intensive levels.
Where canada is not doing enough
Opportunities for intensive second-language study are limited.•
Students face challenges if they want to study in their second language, and lack opportunities to take courses in different •academic disciplines taught in the second language.
Immersion opportunities at the university level are very limited.•
Few institutions offer students second-language courses that are tailored to their chosen field of study.•
Exchange opportunities • within Canada are limited.
University second-language policies or requirements are generally weak or non-existent.•
6
3.2 Access to intensive second-language learning opportunities is limited
Access to what may be called intensive second-language learning opportunities is much more limited for Canadian university students.
In the context of this report, intensive second-language opportunities are defined as follows:
opportunities for students to • study in their second language, that is, to have some or all of their subjects taught in the second language;
opportunities to enrol in immersion programs at the university level; or•
opportunities to take second-language courses that are linked or tailored to specific academic disciplines, that is, that teach the second language •by using the content and vocabulary of that discipline.
Each of these opportunities is discussed in the following sections.
3.2.1 Students who want to study in their second language at university face special
challenges or have limited opportunities to do so
Studying academic subjects in their second language can be a very effective way for students to develop their skills in that language.
Students at university in Canada who wish to take some or all of their courses in their second language have different options:
They can enrol at an other-language institution. •
They can study at a bilingual institution. •
They can take courses taught in their second language at an institution where the usual language of instruction is the student’s first official language.•
Whatever option they choose to study in their second language, students face special challenges, and have limited opportunities to do so.
Studying at an other-language institution
Students who already have a high level of ability in their second language and who wish to further develop their second-language skills can attend an other-language institution, that is, an institution where the language of instruction and study is the student’s second language.
English-speaking students can enrol at one of the 14 French-language institutions in Quebec or at one of the four French-language institutions outside Quebec.2 French-speaking university students can enrol at one of the three English-language institutions in Quebec3 or at an English-language institution elsewhere in Canada.
Data is not available on the extent to which students are availing themselves of these opportunities, which would offer them a more-or-less complete immersion experience in their second language. However, the number doing so at this time appears to be quite small.
Officials at some French-language institutions outside Quebec do report that a significant portion of their enrolment is now coming from English-language students; for example, almost 70% at Campus Saint-Jean and just under 30% at the Collège universitaire de Saint-Boniface.
2 Campus Saint-Jean at the University of Alberta, Collège universitaire de Saint-Boniface, université de Sainte-Anne and Université de Moncton3 McGill University, Concordia University and Bishop’s University
7
Studying at a bilingual institution
Students can also study in their second language at one of Canada’s six bilingual institutions.4
Data is not available on how many students at these institutions are taking at least some courses in their second language. According to university officials interviewed for this study, the number of students doing so is believed to be small, however.
The university of ottawa
The University of Ottawa is by far the largest bilingual institution in Canada.•
Almost all courses are available at the university in both English and French, in most disciplines.•
The available data on language use indicates that there are some 25,000 students studying in English at •the university and approximately 11,000 studying in French.
The number of English-speaking students taking courses in French, however, is believed to be quite small, less than 5%. •
Studying in the second language at an own-language institution
Students who want to take at least some courses taught in their second language at an own-language institution—that is, English-speaking students wishing to take courses taught in French at an English-language institution or French-speaking students wishing to take courses taught in English at a French-language institution—have very few opportunities to do so.
Only a few English-language institutions in Canada report offering any courses taught in French.
The majority of those institutions offer only a small number of courses in French, and these tend to be in a narrow range of academic disciplines: most are in Education or in subjects related directly to language study; examples of other areas include Arts, Humanities and Social Sciences. Only a few institutions, in fact, reported courses taught in French in more than one or two academic disciplines.
Of the 60 English-language institutions in Canada, only 16 (26%) report offering any courses taught in French.• 5
Most of these (nine institutions) offer such courses only in one or two academic areas, e.g.,•
Bishop’s University (Business, Fine Arts)•
Queen’s University (Canadian Studies)•
University of Alberta (Cultural Studies)•
University of Lethbridge (Education)•
Only seven English-language institutions report offering courses taught in French in more than two departments.•
Similarly, only a relatively small number of subject-matter courses are taught in English at Quebec’s French-language institutions. Only half of those institutions (seven institutions) offer such courses, and they tend to be offered in a fairly narrow range of departments, including Business, Accounting, Science and Engineering.
The french cohort Program at Simon fraser university
The Office of Francophone and Francophile Affairs was established at Simon Fraser University in 2004, with a mandate to •develop and coordinate opportunities for study in French at the University.
The French Cohort Program or Program in Public Administration and Community Services is a four-year, multidisciplinary •program taught mostly in French, leading to a major in Political Science and an extended minor in French (or vice versa).
The program features small class sizes, linguistic supports outside class, a French-language resource centre and a variety of •socio-cultural activities.
In the third year, students are obligated to participate in an exchange program to study in French in Quebec, France or Belgium.•
4 Dominican College of Philosophy and Theology / Collège dominicain de philosophie et de théologie, Laurentian University / Université Laurentienne, Royal Military College of Canada / Collège militaire royal du Canada, University of Ottawa / Université d’Ottawa, University of Sudbury / Université de Sudbury, Glendon Campus (York University) / Campus Glendon (Université York).5 Some English-language institutions have campuses that offer courses in French, but are treated separately for the purposes of this study (such as Glendon Campus or the Campus Saint-Jean).
8
3.2.2 Access to immersion programs at the university level is very limited
Immersion programs offer students a structured program that involves them taking all or a significant proportion of their courses in the second language, while benefiting from special second-language learning supports and assistance.
Immersion programs are, however, much less available in universities in Canada than they are at the elementary and secondary levels.
Only a few institutions that participated in the survey reported offering immersion programs. The available data does not provide information on the depth or extent of those programs, for example, on how many courses are offered in the immersion program, or how many students are enrolled.
french-language Immersion at the university of ottawa
Students take one-third of their courses in French, choosing courses from more than 50 academic programs.•
Immersion students attend classes with Francophone students, accompanied by a language teacher.•
Small-size, 90-minute language-support classes are offered, adapted to course content.•
Graduates receive a “French-immersion” designation on their diploma and a Second Language Certificate.•
Students can combine immersion with an international exchange or co-operative education. •
Immersion is very limited at the university level in canada
French immersion programs are offered at only •17 of 84 institutions (20%): 10 English-language institutions, including one in Quebec; two bilingual institutions; and five French-language institutions, including three in Quebec.
The regional distribution of French immersion •opportunities is uneven, and in most provinces French immersion is offered at only one or two institutions.
Only Bishop’s University reports offering English •immersion in Quebec.
glendon campus—a bilingual liberal arts campus
All undergraduate degree programs (except English Studies and Hispanic Studies) offer discipline courses where •the language of instruction is French.
Undergraduate bilingual programs are offered.•
A fully bilingual Master’s in Public and International Affairs is offered (see p. 22 for details).•
In bilingual courses, students are expected to share in class discussions in both languages.•
Glendon offers a unique option for language learning, whereby students can take courses in English or in French •and can complete all course assignments and exams in the other language.
9
3.2.3 Second-language courses linked to specific academic subjects are not widely available
A number of universities have begun to offer second-language courses linked to a specific academic discipline.
In such courses, the second language is taught using vocabulary and content related to a specific academic discipline, for example, Business French, French and Law, or Anglais d’affaires.
32 of 84 institutions (38%) report offering French second-language courses linked to an academic subject•
9 Quebec institutions offer English second-language courses linked to an academic subject•
For students, this can be an interesting and effective way to develop their second-language skills.
However, the number of institutions offering this kind of second-language course remains relatively small. The number of courses that are offered is limited and such courses are currently available only in a narrow range of disciplines.
3.2.4 Few institutions offer exchange opportunities within Canada
Many Canadian universities reported that they offer or facilitate exchange-type opportunities for students to improve their second-language skills.
Exchanges can be for a short (a few days or a week) or long (a semester or a year) duration, and can take the form of study exchanges or visits, cultural exchanges or visits, or work opportunities.
It appears, however, that most of the exchange opportunities are in fact offered at institutions in other countries, and that exchange opportunities at institutions in Canada are rather limited.
Almost 70% of institutions report offering French second-language exchange-type activities. •
Most of these exchanges are with France or other French-speaking countries.•
Relatively few exchanges are with French-language institutions in Quebec or elsewhere in Canada.•
In Quebec, only five institutions report offering English second-language exchange-type activities.•
The certificate Program in business french at the university of Western ontario
“ A unique and attractive program that offers you the opportunity to achieve a high level of proficiency in written and spoken French. It ensures that you will be recognized as functionally bilingual and can use French effectively in the workplace and in business-oriented situations. It can help prepare you for many types of employment [...].
French is the first language of about a quarter of Canada’s population and of 90 million people worldwide. Proficiency in French is a valuable asset in today’s international job market.”
University brochure
Students take six full-credit courses on a full- or part-time basis: three compulsory core-language courses, one •compulsory course in Business French, and two optional courses.
Course choices include Professional Communication in French, Intensive Business French, and Business French Writing •(on-line).
10
Moreover, few exchange opportunities are actually built into a program or course of study as an integral part of it, although some institutions have done so.
3.2.5 Second-language policies and requirements are weak or non-existent
Most universities do not have a formal policy that recognizes and promotes the value and importance of second-language learning, or any requirements regarding it.
Most policies or requirements cited are for prerequisites for a French second-language or English second-language program. Some institutions require students to complete a limited number of French second-language or English second-language courses in order to successfully complete their program.
Second-language requirements that do exist tend to be minimal (a few courses) and apply to a small number of academic disciplines. They often refer only to “a language other than English [other than French in Quebec].”
Two-thirds of institutions (65%, 55 institutions) have no formal policy on second-language learning. Twenty-five per cent report that they have a policy.•
Examples of second-language requirements include the following:•
At the University of Regina, the Faculty of Arts requires that all students take six credit hours in a language other than English.•
At Dalhousie University, all Bachelor of Arts’ students must complete a full language credit (six hours).•
At the University of British Columbia, in order to be admitted, high school students must have completed a Grade 12 course in a •language other than English. To graduate, students must complete French 112 (Beginner’s French IV) or a second-year course in a language other than English.
At the Université du Québec à Montréal, all bachelor programs in administration of the École des sciences de la gestion require that •students pass an intermediate-level English test.
At the University of Lethbridge, the French/Modern Languages Education program requires that students spend a semester studying at •a French-language institution.
The frecker Program at memorial university
This one-semester (three-month) immersion program, offered in both the fall and winter terms, provides students with the •opportunity to travel to Saint-Pierre-et-Miquelon.
Students take a full university program of five courses (15 credit hours) in French and live with a French family.•
Other activities include theatre and musical workshops, cultural activities at the community centre, different excursions •and athletic and recreational activities.
Students’ language skills are tested before and after participation in the program.•
Students receive bursaries funded by the federal and provincial governments.•
11
4. IS There a demand . . . and a real need?
The study findings suggest that there is both present and potential demand for improved second-language learning opportunities.
4.1 why, according to students, are second-language learning opportunities at university important?
Student participants in the focus groups emphasized a number of reasons why they felt learning their second language was important.
Many cited second-language skills as being a real asset for employment and career opportunities.
Students also referred to the two official languages as a fundamental element of Canadian citizenship and of Canada’s national identity, hence the desirability and importance of more Canadians speaking both languages.
Francophone students in Quebec underlined the importance of English for business and international affairs.
Strikingly, many student participants emphasized personal development and enrichment as their motivation for wanting to learn a second language. They see the need for knowledge of other languages as a given in the modern, increasingly global context—and therefore as an integral part of post-secondary education in today’s world.
4.2 Students have varied second-language learning needs that are not being met
Participants in the focus groups and key-informant interviews made it clear that students have language-learning needs that are multiple and varied, and that are not being fully met.
Many made the point that students now at or arriving at university want to maintain or improve second-language ability obtained at elementary and secondary levels. Not to do so, they feel, would mean losing their own investment of time and effort at the earlier levels and wasting the investment of significant public resources.
Students’ needs vary greatly, according to their second-language knowledge and experience, for example, in immersion or intensive second-language programs or regular programs.
Immersion graduates are looking for opportunities to continue to study in their second language at the university level, at least for some programs and courses.
Other students arriving at university want to acquire the degree of second-language proficiency that they wanted but failed to reach at the earlier levels. Often, they expressed frustration about this and a determination to do so now.
“Learning another language opens so many doors and exposes you to another world . . . It helps in connecting with people . . . It’s a huge benefit.”
“It sounds like a cliché but learning another language breaks down barriers. It expands your way of thinking. It gives you access to a whole different way of seeing life.”
“Speaking another language gives you a vehicle to understanding another person, another culture, another way of life . . . It’s a kind of bridge, another way to get closer to one another.”
“It opens so many opportunities, you’re not bound to one region, one city, one culture . . .”
Student participants
“ I can’t believe I took French off-and-on throughout elementary and secondary school, sometimes immersion, most often Core French, and I still can’t speak it properly! All that time and effort . . . How can that be?
And now I’m at university, I really realize how important it is going to be to me in the future. That’s why I’m determined to master French by the time I graduate and start looking for work.”
Student participant
12
Many student focus-group participants expressed a strong desire for more content in second-language learning, both cultural content and content relating to their chosen academic and career field.
Some expressed the desire to take courses in different academic areas that were taught in their second language, as a way of meeting a twin objective: to acquire greater second-language proficiency while learning subject-matter content.
Students all said they were looking for more opportunities to use their second language, more contact and interaction with peers and others of the other language group, and more opportunities to study, live or work in their second-language environment.
4.3 there is both actual and potential demand for more second-language learning opportunities
While it is clear that students have multiple second-language learning objectives and unmet language-learning needs, there is little hard data available on the extent of demand from students for improved second-language learning opportunities, or on the demand by employers for second-language skills.
A few studies do provide some analytical and statistical information on private-sector demand, and on the advantages of language skills and knowledge of the second language.
According to a study by the Canadian Council on Learning (• Lessons in Learning, October 2008), employment rates in Canada are higher for individuals who speak both English and French (70%) than for persons who speak only English (just over 60%) or only French (slightly less than 60%) according to the 2006 census.
The same study found that persons who speak both English and French had a median income almost 10% higher than those •who speak only English, and 40% higher than those who speak only French (2001 census).
It also reported that a survey of 63 companies across Canada found that 84% of employers considered knowledge of both •English and French to be an asset or gave preference to English-French bilinguals.
Another recent study (Canadian Parents for French• , Survey of Supervisors of Bilingual Employees, 2008) found that, outside of Quebec and the federal public service, 81% of supervisors of bilingual employees considered them “a valuable asset” to the organization.
“You get a thrill from being able to study a subject in another language . . . It gives you intellectual stimulation.”
“I love the idea of combining learning your second language with study in an academic subject that really interests you . . . It gives you ‘two for one’ . . . A real bonus.”
“The best way to learn a second language is to study in it . . . When you study a subject in your second language, you have to do it at a more profound and intimate intellectual level . . . Learning how to say ‘I saw a dog’ in your second language just isn’t enough!”
Student participants
13
There is widespread belief among students, university educators and administrators, government officials and other participants in the focus groups and interviews that language skills are a definite career asset. There is a strong sense that this will continue to be increasingly important.
Many persons saw the demand question as a “chicken-and-egg” situation—a wider range of varied opportunities does not currently exist, so universities are not experiencing huge demand.
Many felt that doing more would attract more students and thereby increase a university’s enrolments.
4.4 there are economic and societal arguments for doing more
Many persons made the point that globalization, the knowledge economy and international competition are placing a premium on new skills, including language skills, in today’s world.
“The private sector increasingly sees language skills as a global competency . . . This doesn’t mean only English and French, but multiple languages . . . It’s part of Canada’s ‘brand,’ part of our competitive advantage . . . For the individual, language skills mean more mobility, more opportunities . . . And the private sector sees language capability as a ‘marker’ not only of specific skills but also of attitude, of capabilities, of willingness and ability to learn . . . This is so important in today’s global, knowledge-based economy . . . ”
Private-sector representative
“If universities offered a range of options and choices that were ‘enticing’ to students, if appropriate supports were available, if second-language acquisition was seen as valued and valuable, if information was available and opportunities promoted . . . We would see significant demand.”
Language-learning expert
“There is definitely a market out there for this . . . Lots of immersion graduates and others looking for somewhere to go . . . . ”
Provincial government official
“Diversify the number and kinds of programs you offer in French and you will see, you will attract more students!”
Student participant
“In a highly globalized and knowledge-based marketplace, linguistic duality is a key competitive advantage, which can help Canada further its economic success. Having two languages of international scope puts Canada at the forefront of societies with knowledge-based economies. This asset allows Canadian businesses easier access to global markets and partners. The language skills of Canada’s workforce, particularly among youth, are also a major asset for the economy. These skills strengthen Canada’s human capital advantage and allow Canadians to build stronger economic links with international partners.”
Roadmap for Canada’s Linguistic Duality 2008–2013: Acting for the Future
14
Participants in the focus groups and key-informant interviews frequently expressed the view that Canada was falling behind other countries in recognizing and acting on the importance of language skills.
Second-language learning is seen as important for Canadian identity and citizenship, and better understanding among Canadians.
Many participants expressed the view that Canada needs more bilingual people in many different fields in order to function effectively as a country. They emphasized that this did not mean that everyone in Canada should be bilingual; rather, it is important that all Canadians have the opportunity to become bilingual if they wish.
Many noted that the Government of Canada needs to recruit more bilingual candidates and to ensure that the public service reflects the linguistic and regional diversity of Canada.
The federal government is the largest employer in the country, with close to 500,000 employees when the armed forces and government agencies are included.
In the context of public service renewal, given the retirement of many older workers, it is seen as critical for the government to have access to a larger pool of bilingual recruits, many of whom will be coming from Canada’s universities.
“The public service currently has approximately 180,000 employees who are part of the core public administration. In addition, 300,000 people work for ‘a Crown corporation established by or pursuant to an Act of Parliament and any other body that is specified by an Act of Parliament to be an agent of Her Majesty in right of Canada or to be subject to the direction of the Governor in Council or a minister of the Crown’ and are therefore subject to the Official Languages Act. By comparison General Motors employed 10,800 people in Canada in 2008.
[…]
Since 2000, the federal public service has had to recruit between 12,000 and 15,000 employees per year to replace and plan for the retirement of public servants. In other words, the core public administration has to recruit more employees every year than General Motors’ entire workforce in Canada, and close to half a million people are currently employed by an institution subject to some part of the Official Languages Act.”
House of Commons Standing Committee on Official Languages, 5,000 Bilingual Positions To Be Filled Every Year: The Role of Postsecondary Institutions
In Promoting Canada’s Linguistic Duality
UNESCO has stated that “intensive and transdisciplinary learning of at least a third modern language […] should represent the normal range of practical linguistic skills in the twenty-first century.”
UNESCO, Implementation of a language policy for the world based on multilingualism (2000).
“The European Union (EU) has established that, in the long term, each of its citizens should speak his or her mother tongue and two other languages.“
Official Journal of the European Union (July 25, 2006).
“[A] bilingual institution, province, or country can function efficiently only if there are a sufficient number of bilingual people to maintain contact between the two language groups.”
Royal Commission on Bilingualism and Biculturalism, Book One: General Introduction – The Official Languages
“[E]ffective cooperation between the two linguistic groups depends on the willingness of individual Canadians to become bilingual […].
Royal Commission on Bilingualism and Biculturalism, Book Two: Education
15
5. WhaT WorkS . . . and WhaT Would Work beTTer
Second-language learning at the university level in Canada has been the subject of less study and evaluation than second-language learning at the elementary and secondary levels. Nevertheless, there is a strong consensus among participants in the focus groups and key-informant interviews on what is important and effective in second-language learning, and what could be done to improve current university programs.
5.1 Students were clear about what they like in current programs and what they would like to see
There were important common threads in what students identified as effective in their experience in second-language programs.
Most students emphasized that what matters most in the classroom is the professor. The smaller class size of many second-language courses was also seen as being of great value, allowing more opportunities for interaction with the professor and fellow students.
As noted earlier, many students emphasized the importance of content in second-language learning. By this students meant both cultural content and also more subject-matter content, linked to their academic and career interests. This is seen as making second-language learning more relevant, interesting and challenging. Students also expressed the desire to take courses in other academic subjects that were taught in their second language. They found the combination of second-language acquisition and subject-matter content learning was a “win-win” situation.
The Public Service and bilingual Staffing—Some facts
As of March 31, 2008, for (staffed) indeterminate positions in the federal public service
in the National Capital Region, almost 65% of all positions were bilingual.•
Almost 54% were bilingual imperative (i.e., positions for which the linguistic requirements of the position must be •met upon appointment)
Almost 11% were bilingual non-imperative (successful candidates may take language training after appointment)•
nationally, almost 40% of all positions were bilingual.•
Almost 34% were bilingual imperative•
Just over 6% were bilingual non-imperative•
The number and percentage of appointments that are made to bilingual imperative positions has increased in recent years, and appointments to bilingual non-imperative positions have declined.
In 2003–2004, only 496 appointments were to bilingual non-imperative positions, or 3.5% of all appointments.•
In 2007–2008, those figures were 265 and 1.2% respectively. •
In 2003–2004, 3404 appointments were to bilingual-imperative positions (23.9%).•
In 2007–2008, those figures were 5482 and 25.1%, respectively.•
Public Service Commission, Appointment Information and Analysis Directorate
“You can’t separate learning a language from learning about the culture associated with it . . . That’s what gives language learning meaning and reality.”
“I’m looking for more than linguistics and literature.”
“I’d love to take a second-language course in my area of academic study, say business or engineering . . . Lots of kids would do that!”
Student focus-group participants
16
Students spoke as well of the importance of learning supports and assistance, such as tutors, monitors, writing assistance and social and cultural activities.
Students were somewhat divided on other aspects of their language-learning experience. In terms of supports and assistance, some liked having the option to submit papers and take exams in either language; others felt this undermined the objective of the language-learning experience. Some felt that being given pass/fail grades was beneficial, removing concerns about grades that might discourage some students, for example, from taking a program or course taught in the second language; others disagreed, feeling it was important to have grades for all subjects and to demonstrate that they had taken a more challenging approach to their university education and still succeeded.
5.2 language-learning experts identified several key success factors
Language-learning experts emphasized that content-based learning has been proven to be very effective. Studying academic subject matter in the second language can lead to better results in the acquisition and development of second-language skills.
Language experts also noted that a range of learning supports for students should be available, varying according to institutional and individual circumstances. Such supports could include the following:
early assessment, placement and streaming; •
a sheltered learning environment, particularly in the early years, for example, having a language teacher accompany students to class; •
supplementary language classes linked to course content; •
tutoring and assistance with writing, grammar and oral expression; and•
preparatory or intensive language learning at the outset of the school year or in the summer.•
Other important success factors were identified by language experts:
Second-language learning opportunities must be provided in favourable conditions, that is, they must respect the parameters and timetable for •students’ academic programs and not require excessive additional commitment of money, time or effort, if students are to be motivated to pursue second-language study.
Opportunities should be offered early in students’ university experience, as students may lose both language competency and motivation by later years.•
Recognition and credentials (degree, joint degree, certificate) are critical motivating factors for students.•
A physical place to provide easy access to resources and opportunities for use of the second language can be very valuable.•
The pedagogy of language teaching and learning is important; it is necessary but not sufficient for a professor to have proficiency in the second •language.
Professors teaching an academic course in the second language are being asked to do a dual job (course content and language learning), and may also •need some supports (for example, adjunct language teacher in the classroom).
5.3 Professors, administrators and government representatives identified important issues for the organization and delivery of second-language programs
Financial and funding issues were identified as critical. Additional resources are necessary to develop and successfully deliver effective programs.
Again and again, the point was made that leadership and commitment must come from the top and are absolutely essential. Universities must demonstrate that they value second-language learning, and recognize and promote it starting at the highest levels.
“We know that second-language acquisition is enhanced if students are learning other subjects while learning the language. This makes it more challenging and interesting for students, and can be very motivating.”
Language-learning expert
17
Coordination and logistics are seen as crucial, and require time and effort. This includes planning and organizing programs and initiatives, negotiating with other institutions and with other faculties within an institution and marketing.
Some spoke of the importance of second-language entrance and exit requirements. These send a signal about the importance of language learning and can have an impact on students’ decisions.
Successful programs must also be built from the bottom up through community involvement. Consulting parents and involving school officials and teachers, community organizations and others is critical to identifying issues, needs and ways to respond to them in order to make for better programs and build support.
5.4 All agreed on the importance of real-life opportunities to use the second language and interact with persons from the other language group
Students, professors, government officials and second-language learning experts all underscored the critical importance and value of real-life opportunities to use the second language, through interaction with persons from the other language group, social and cultural activities, exchanges and opportunities to study, live and work in the second-language milieu.
Many identified this as the most important factor in determining the success of the second-language learning experience. True proficiency in another language can only come if classroom learning is combined with out-of-classroom experience and interaction with people who speak that language.
Language-learning experts refer to learning through opportunities for interaction with people who speak the other language as authentic communications, or naturalistic learning. They emphasize that both formal instruction and informal learning are essential.6
“If there is one single thing that would be most effective at the elementary and secondary levels—and by extension at the university level—it would be to do more to send these students on exchanges . . . This makes the second language real for them. It motivates them. And they can learn much more, relatively, within a short space of time by using the language with native-speakers . . . Exchanges are where it’s at . . . The results can be amazing!”
Second-language learning expert
“Maybe we have to face up to the inevitable . . . that we can never really master our second language unless we live, study and work in that linguistic milieu.”
“You have to live and study or work in a real second-language environment. . . You have to really grab the language and learn to speak it by using it. It’s not like studying history.”
Student focus-group participants
“The university, at the highest levels, has to communicate that it values this and sees it as important. It has to be seen as part of the mandate and mission of the institution.”
“Someone has to take ownership and make sure it gets done.”
“You can’t just list something in a course calendar and ‘throw it out there.’ You have to identify and know the student clientele, you have to plan and organize, you have to set up the supports, you have to do the marketing and promotion . . .”
Participants, key-informant interviews
6 See, for example, www.olbi.uottawa.ca/symposium09.html
18
6. key ISSueS and challengeS
The preceding sections of this report have identified gaps and shortcomings in current second-language learning opportunities at the university level, the nature of the demand and need for more and improved opportunities, and what is known about the effectiveness of current programs and ways in which they could be improved.
This section discusses some of the key issues and challenges that emerged in the course of the study with respect to improving second-language learning in Canada’s universities.
6.1 costs and financing
The costs and financing of second-language programs was, not surprisingly, a key issue raised by all participants: university administrators, professors and students, government officials, and language experts alike.
Many participants made the point that language learning requires smaller classes, and therefore entails higher costs. The classic per capita formula for financing university programs is not seen to be appropriate for second-language learning. It was also stressed that language programs can be very labour intensive to develop, requiring additional effort, time and resources.
In the current economic context, most participants felt that all university programs are in a precarious situation, and that new, dedicated investments by all levels of government will be essential if universities are expected to do more.
6.2 French-language institutions outside Quebec
Representatives of French-language institutions outside Quebec spoke of both the opportunities and the challenges for their institutions as they seek to attract more Anglophone students, notably immersion graduates.
Some felt strongly that such institutions offer the best potential for second-language learning because they already have the necessary infrastructure in place and because of their socio-cultural and learning environment, which offers students the opportunity for more-or-less complete immersion in the other linguistic milieu.
“There are three possible approaches to improved, more intensive second-language learning opportunities for students at university: study at a bilingual institution, study at an institution of the ‘other’ language, or study at an ‘own-language’ institution, taking courses in the second language.
All three approaches have additional costs: all involve smaller numbers of students, thereby generating these additional costs, and all three need support.”
Senior university administrator, key-informant interview
“Francophone institutions outside Quebec are in position to play a lead role in second-language education and learning in Canada.
They have the mandate and infrastructure, and have the supreme advantage of being able to offer a French-language learning and social and cultural environment, perhaps the key determinant of success in second-language acquisition.”
Senior university administrator, key-informant interview
19
Some persons expressed concern about the possible impacts on the institutions and their linguistic and cultural milieu if there were to be a large influx of English-speaking students.
Concern was also expressed that additional resources for English-language institutions to expand second-language opportunities would undermine the financial resources and stability of these French-language institutions. This concern was also raised by bilingual institutions.
Most observers emphasized that special efforts in marketing, information and promotion are needed for these institutions to attract and retain Anglophone students, and that special learning supports and assistance are required to ensure their success and integration.
6.3 role and status of language departments; teaching approaches in universities
Professors and administrators involved in second-language programs were critical of how language learning and language departments were seen and valued in the university context.
There was a commonly held perception that language departments were the poor cousins of the university community, and that they were regarded as inferior to true academic domains.
There was a strong sense that language learning was not valued or seen as important by senior university administrators and that, in English-language institutions, French had no or little official recognition or place.
At the same time, the approach taken by university language departments to the teaching and learning of the second language was an issue raised by many participants. There was considerable criticism from students about what they saw as being an approach overly focused on literature, and not on actual language teaching and learning.
Students expressed the desire to see more focus on oral and written communications skills, and on opportunities to use language in everyday and real-life situations, as well as closer links to academic subject-matter content and areas of career interest.
6.4 Partnerships, collaboration and use of technology
Many participants felt that partnerships and collaboration, as well as technology, have great potential for improving second-language learning opportunities in universities.
There was a widespread belief that collaboration between institutions is currently under-exploited. There was a strong feeling, in particular, that more could be done especially with other-language institutions, including minority-language institutions, as well as bilingual institutions.
While a majority of universities that participated in the survey (65%, 55 institutions) reported having some type of relationship or arrangement with institutions that use the other language, most frequently this referred to the possibility of students receiving credit for programs and courses taken at other institutions. Few institutions reported formal or special arrangements with other institutions specifically designed to promote or facilitate second-language learning.
“There are funding concerns that improved second-language learning opportunities should not open up official languages in education financing so that resources for French-language institutions would suffer.
We need to build on what already exists, in both Francophone institutions and bilingual institutions. Putting a lot of dollars into Anglophone institutions to offer a few courses in French would take funding away from bilingual and minority-language institutions and would have minimal impact and effectiveness.”
Senior university administrator, key-informant interview
20
This could include agreements and arrangements that make it easier for students to take second-language courses or courses taught in their second language at or through an institution that teaches in the other language.
Many felt that a priority for inter-institutional collaboration should be to promote greater exchange-type opportunities for students to study, live, work and interact with persons from the other language group and benefit from an immersion-type academic, social and cultural milieu, for example, long- and short-term study, summer programs and work co-ops.
The possibility for using technology was also seen as something that needed to be further developed in conjunction with greater inter-institutional collaboration. This could include computer software, video-conferencing, online courses, and distance learning.
Better collaboration within institutions was also identified as something that needs to be pursued. Language departments, for example, could work closely with other faculties to develop second-language courses tailored to the vocabulary and content of particular disciplines, and assist in the development and delivery of subject-matter courses taught in the second language.
6.5 continuity and coherence in second-language learning opportunities
Students, professors, university administrators, government officials and language-learning experts all saw important linkages across the different levels of the educational system, and stressed the need for coherence and continuity.
Students’ experience at the elementary and secondary levels and the degree of second-language proficiency acquired at those levels can affect their decision to pursue second-language study at university, their language-learning needs and the kinds of programs that universities can offer them.
Because of the diversity of programs offered at the secondary level, such as immersion, core French, intensive and extended programs, students entering post-secondary institutions have widely varying levels of second-language ability. While some students entering post-secondary studies are, in effect, unilingual, others are almost fluently bilingual. Meeting the needs of both groups is extremely difficult, and can pose significant challenges for universities in designing second-language programs and courses.
At the same time, many participants commented that a lack of varied opportunities for second-language study at the university level, as well as decisions by universities to eliminate second-language requirements, were affecting students’ decisions to continue in second-language programs at the secondary level, and that more students were dropping out early.
Many professors expressed the view that the second-language abilities of students entering university have deteriorated in the past few years, and that more students are arriving at university without any recent second-language experience and with rapidly declining second-language skills.
Language-learning experts and researchers do not necessarily share this view on students’ abilities, although they point to the very limited success of core second-language courses. Experts point out that, while the grammar and writing skills of immersion students may be somewhat weak, they generally have impressive skills and abilities in terms of comprehension and the ability to think and process complex information in their second language. These abilities are very important for post-secondary study.
The key point made by many participants was the need to see the education system as a continuum, and to offer a coherent range of varied and meaningful second-language learning opportunities across all levels.
a few examples of collaboration and the use of technology
The Collège universitaire de Saint-Boniface offers French-language teacher training on site to students at the University of Manitoba.•
The University of Alberta has video links with Campus Saint-Jean to assist it in providing French second-language courses to its students.•
The University of Prince Edward Island has an exchange arrangement with the Université de Moncton for students in teacher education.•
21
6.6 Marketing, promotion and information
Participants in virtually all focus groups, and many of the persons interviewed as well, emphasized the importance of marketing, promotion and information. Students need to know more about what opportunities are available. They also need to know the value and benefits of second-language skills, notably for career possibilities.
Several key strategies were identified:
Universities would attract more students by diversifying the number and kinds of second-language programs they offer.•
There is a need to reach students earlier at the secondary level, as they are being pressed to make decisions early on about university and career paths.•
The personal touch—direct contact by universities, information fairs, use of ambassadors or persons who have found second-language •skills advantageous in their careers—makes a difference.
6.7 Second-language learning and public administration
Many participants made the point that closer links must be established between second-language learning and university programs relating to public administration.
Currently, few university programs in public administration and related fields reflect the importance of Canada’s two official languages—programs at Glendon Campus of York University and Simon Fraser University being notable exceptions.
For example, few university programs in this area have second-language exit or entrance requirements, or build in exchange opportunities. Few offer second-language courses that reflect public administration content and vocabulary. Few offer any courses in this area in the second language. There are also no linkages between university language tests or requirements and public service linguistic requirements and tests.
In the context of the renewal of the federal public service, more than ever the Government of Canada needs to have access to a wider pool of bilingual candidates.
In addition, all Canadians, regardless of where they live in Canada, should have access to opportunities to work for their federal government, in positions that require second-language competency as well as in positions that do not. Accordingly, those who want to should have access to appropriate second-language learning opportunities through the education system, including at the university level.
Some participants also noted the need of some provincial and territorial governments to recruit bilingual personnel, notably Quebec, Ontario, New Brunswick, Manitoba and the territorial governments.
“What we have to understand is that the education system is really just that, a ‘system;’ it’s all ‘of a piece.’ What happens at one level of the system influences every other level. What we do—or do not do—at the secondary level affects what universities do. And what universities do—or do not do—also affects the other levels.
We have to send the clear message at all levels that we value language learning, that it is important.
And we have to provide a range of opportunities throughout the system, at all levels.”
Language expert, key-informant interview
22
Many persons felt that public administration programs were a logical area where universities need to do more with respect to second-language learning. Many participants reiterated the fact that the younger one is, the easier and the more effective it is to learn another language. This simple fact should guide the federal government in its support for increased learning opportunities in universities. Pursuing learning a second language at the university level through a variety of courses, activities and real-life interactions also develops intercultural competencies that facilitate working in and managing a respectful bilingual and diverse workplace. Many felt that there is a need but that it is also in the best interest of the governments, especially the Government of Canada, to work more closely with universities in this regard.
7. The Way forWard
The findings of the study suggest a number of important areas where Canada needs to do better in second-language learning at the university level. The study also has yielded information about what works, what is needed for success, what students want, and what some of the key issues and challenges are.
Where do we go from here? Are there potential models and examples that can be adapted by others? What are the next steps to take? And who should do what?
This section of the report proposes broad directions, outlines different models and approaches that have emerged in the course of the study and summarizes the many suggestions put forward by various parties for future action and next steps.
7.1 broad directions for the future and priority areas for attention
This study points to several broad directions and areas for attention.
First, Canada needs to improve opportunities for intensive second-language learning.
Second, minority-language institutions (as well as bilingual institutions) hold great potential for offering young Canadians such opportunities, and this potential needs to be better exploited.
Third, enhancing partnerships and collaboration, notably with minority-language and bilingual institutions, and the use of technology offer much promise for doing more in a better way.
Fourth, expanding exchanges and real-life opportunities for students to use their second language should be a priority.
Fifth, adopting stronger second-language policies and requirements should be considered as part of an overall strategy to improve second-language learning at university.
And lastly, more needs to be done to better inform students about the advantages of second-language skills and about the opportunities to develop them further at university.
moving forward—broad directions and key areas for attention
Improve opportunities for intensive •second-language learning
Exploit potential of minority-language institutions•
Enhance partnerships, collaboration and use of •technology
Expand exchanges and real-life opportunities to •use second language
Adopt stronger second-language policies and •requirements
Expand information, promotion and •marketing efforts
ma in Public and International affairs at glendon campus
Two-year interdisciplinary Master’s program to prepare students for roles in the public realm•
Bilingual education approach; university staff bilingual, courses taught in both official languages•
Studies in public policy and administration and in public affairs in both Canadian and •international contexts
Support to further develop students’ skills in their second official language, including •second-language courses and learning assistance
A paid internship component with a governmental or non-governmental organization •
23
7.2 Potential models and approaches
In the course of the focus groups and key-informant interviews, a number of potential models or approaches for second-language learning at university emerged.
Participants felt that a variety of models and approaches to enhancing second-language learning opportunities were needed. No one model or approach can be applied to all circumstances. Each university works within a unique context:
The situation of an institution—its size, mission, resources, location•
Whether the university is situated in a majority- or minority-language context•
Its proximity to other-language institutions and communities•
As well, the students’ objectives, needs and levels of ability play an important part in the equation.
Participants noted that there were already a number of models that could be adapted or tailored to particular situations and contexts.
Each of these is discussed in this section.
It should be noted that these models are not necessarily complete models, in a fully developed sense.
Some are more concepts or approaches; and while some describe a management style or approach, others describe an approach to program delivery.
It should also be noted that the different models identified are not mutually exclusive; institutions looking to enhance second-language learning opportunities could choose to incorporate elements of different approaches to either management or program delivery.
7.2.1 The other-language institution model
In this model, students attend institutions where the language of instruction is the other official language, that is, English-language students study in French at French-language universities in Quebec or in other provinces, and Quebec French-language students study in English at English-language institutions in other provinces or in Quebec.
The very important advantage of this model is that it offers students almost total immersion in the academic, community, social and cultural milieu of the other language.
An important issue with respect to this model is the willingness and ability of students to study at an institution where the language of instruction is their second language. As noted earlier, relatively few students seem to be currently doing so. A number of considerations can be presumed to explain this:
Not all students want to take all their courses in their second language.•
Many have concerns about being able to succeed in their second language at the post-secondary level or to compete with students for •whom it is their first language.
There are additional costs when studying out-of-province or away from home.•
Students may want to study at a particular institution or at an institution recognized for its excellence in a chosen field of study.•
There is sometimes limited availability and choice of programs and courses at some institutions.•
Institutions may need to offer special learning supports and accommodations to facilitate the integration and success of these students, and may need to undertake special marketing and promotional activities to attract students.
Potential models and approaches
The • other-language institution model
The • bilingual institution model
The • buffet model
The • centre model
The • partnership model
The • targeting model
The • tailoring model
24
7.2.2 The bilingual institution model
Under this model, students study at a university that has identified itself as a bilingual institution, where bilingualism is a fundamental element of the mission and mandate of the institution.
Such institutions offer a range of programs and courses that are taught in both languages. The model is not a monolithic one. Some institutions may offer all, or virtually all, programs and courses in both languages. Others may offer only some programs and courses in the second language, or may concentrate their efforts to do so in certain specific academic areas. Institutions may also use a bilingual education approach, offering courses where both English and French are used in the classroom.
Students at bilingual institutions who choose to take some or all of their courses in their second language may require special learning supports and accommodations, as under the other-language institution model.
Some bilingual institutions may offer, as well, a structured immersion program, with sheltering and other supports, such as having language teachers attend classes with students and extra language-learning classes.
As with the other-institution model, an issue may be the willingness and ability of students to take courses taught in their second language. Other issues include cost, as there may be additional costs for course offerings as well as administrative costs.
7.2.3 The buffet model
Under this model, institutions offer students the possibility of taking different courses in their second language. The range of courses varies in terms of academic areas and the number of courses offered. Factors include student interest and demand, the availability of professors willing and able to teach subjects in the second language and the mandate and mission of the institution.
This model can be tailored to the circumstances and capacity of institutions, and can be seen as a way to respond to the language learning objectives of students who do not necessarily wish to take all or most of their courses in the second language.
Issues relating to this model include costs, largely relating to smaller class size and to the need for learning supports, and the effectiveness of this approach for second-language learning if students take only a few courses in their second language.
7.2.4 The centre model
This model can be seen more as a management model for developing and offering intensive second-language learning opportunities.
It is characterized by a strong mandate and support from the most senior levels of the university to drive institutional efforts in this regard, along with a strong administrative core to plan, organize and implement the delivery of new language-learning opportunities. It can also include strong learning supports and a physical centre to concentrate resources and supports and facilitate opportunities for second-language use.
Under the model, the number and variety of courses offered could be limited, at least initially, and concentrated in one or two academic areas. The management approach under this model can be accompanied by different modes of program and course delivery.
Issues relating to the model include costs for program management, development and delivery; limited program and course selection; and limited spaces available in such programs.
7.2.5 The partnership model
This model is based on partnerships and collaboration with institutions that use the other language.
Under the model, an institution does not itself offer courses taught in the second language, nor do students enrol full time at an other-language institution.
25
Rather, an institution establishes arrangements with an other-language institution to respond to students’ demand for courses taught in the second language. This could involve a variety of means: part- or full-year attendance at the other institution; online, video-conferencing or distance learning; or the other-language institution offering courses on the campus of the receiving institution.
Issues relating to this model include costs, credit recognition and transfer, ease-of-access for students and effectiveness for second-language learning, if only one or a few courses are taken in the second language.
7.2.6 The targeting model
This model involves identifying academic disciplines and career interests where second-language ability is seen as especially relevant and important, and then applying a variety of tools and instruments to foster enhanced second-language learning within the discipline or subject area.
These tools could include, for example, second-language requirements for graduation; targeted second-language courses focused on the content and vocabulary of the discipline; some courses taught in the second language, either at the institution or through arrangements with an other-language institution; and opportunities or built-in requirements for time spent living, working or studying in the second-language milieu.
This model can lead to a very coherent approach with institutions using a variety of means to make the second-language dimension an integral part of the program of study.
Issues include costs and scope. Effectiveness can also be an issue, depending on the extent and nature of the tools and approach selected.
7.2.7 The tailoring model
This model involves an approach to teaching and learning the second language that focuses on the content and vocabulary of different academic areas, for example, Business French. The choice of disciplines would reflect student interest and demand and relevance to future study and career choices.
This model is more limited in scope and approach than the other models—for example, it focuses on second-language courses and not studying in the second language—and could be used either on its own or integrated with other models and approaches as part of an overall strategy. Recognition of linguistic proficiency, including special certificates, joint degrees or a minor, would be an important feature.
Issues include the costs for program development, the need for close co-operation with other faculties and overall effectiveness if utilized as a strategy on its own and not in conjunction with other efforts and initiatives.
7.3 Suggestions for possible next steps and future actions
Participants in the focus groups and key-informant interviews offered a wealth of suggestions for possible next steps and future actions, which can be divided into advice for four distinct groups:
universities•
governments•
the Commissioner of Official Languages•
other organizations and interested parties•
7.3.1 Suggestions for action by universities
Many participants felt that individual university institutions were in the best position to examine models and approaches and develop plans and proposals for new initiatives, in light of their own situation and their students’ needs and objectives.
A number of participants, however, suggested that a group or consortium of interested institutions should be encouraged to come together and examine issues and develop proposals for future action.
26
The suggestion was made that minority-language institutions should work together to examine issues relating to them and to develop proposals for action and new initiatives, possibly through the formation of a working group of such institutions. As well, if a consortium of interested institutions were to come together, it would be important to include minority-language and bilingual institutions since they are in position to play a lead role in improving second-language learning opportunities.
Many participants suggested that institutions should consider new or strengthened second-language requirements. These could be either part of general university entrance or exit requirements or targeted to certain academic disciplines where second-language knowledge is most relevant and important, for example, public administration, journalism, international affairs or international business. These requirements could form part of an overall strategy to enhance second-language learning in those disciplines, coupled with other measures such as offering tailored second-language courses, offering some courses in the discipline that were taught in the second language or building exchange opportunities or requirements into a program.
Suggestions were made that institutions—on an individual basis or perhaps jointly or in collaboration with the Association of Universities and Colleges of Canada (AUCC) or other parties—should undertake surveys on the willingness and ability of professors to teach in the second language.
It was also suggested that surveys should be conducted by institutions on the interest and willingness of students to pursue second-language study and the types of opportunities, options and programs they would like to have available to them.
Many participants emphasized the importance of institutions developing and undertaking expanded marketing and promotion initiatives. As noted in section 6.6, it was felt that such activities should be undertaken earlier at the secondary level, and could involve the use of ambassadors or the formation of a Speakers’ Bureau; in this regard, it was suggested that governments or the Office of the Commissioner of Official Languages could facilitate and support such an initiative nationally.
Some participants felt that, rather than an across-the-board approach, the development of centres of excellence in second-language learning should be fostered. Institutions should be encouraged to develop niches, for example, in academic areas where second-language skills are most relevant.
7.3.2 Suggestions for action by governments
Participants made suggestions for possible actions by governments, at both the federal and provincial/territorial levels.
Many suggestions focused on funding and financial support, but strong views were also expressed on the need for governments to champion this issue and promote it through policy statements and public communications, and by bringing the different players together to take action.
Many felt that the Government of Canada needed to show national leadership and actively promote the importance and value of second-language learning opportunities at university and post-secondary levels.
It was also often frequently argued that, faced with the need to recruit more bilingual candidates as part of public service renewal, the Government of Canada should work more closely with universities to help prepare a bilingual workforce for the future. The need to establish linkages between public service linguistic requirements and language tests and university programs and language testing was often mentioned as an example where more needs to be done.
The current pilot project being undertaken by the Canada School of Public Service to make its language-learning resources available to a number of universities was cited as a positive development. Mention was made as well of recent efforts by the Clerk of the Privy Council to foster better collaboration between universities and the public service through the “champions” initiative matching university presidents and deputy ministers; it was felt, however, that official languages needs to be one important element of this collaboration.
In terms of government funding and financial assistance, many participants strongly felt that the federal, provincial and territorial governments would have to make available additional funding to support both existing and new initiatives by universities.
In keeping with the importance that many attached to fostering greater opportunities for students to use their second language through real-life opportunities for interaction with persons who speak the other language, suggestions were made for the federal, provincial and territorial governments to increase funding for exchange-type activities. These activities could include work co-ops both within government and in the private and non-profit sectors. Many thought that the government could look at developing a program similar to the Erasmus program in Europe.
27
The increase of exchange possibilities inside Canada with other language institutions through such a program could help develop students’ desire to take part in these types of activities, where they would have real-life opportunities to use the language in a variety of different contexts. Because it is presently unknown how many students are taking part in these particular types of exchanges, it will be important to compile information to evaluate the progress that has been made.
It was also proposed that the Government of Canada increase the funding and promotion of national programs such as summer-language bursaries and official-language monitors, which were seen as valuable programs whose financing is inadequate or precarious. An example of the precariousness of these programs is the recent abolition of the Accent Program for part-time language monitors.
7.3.3 Suggestions for action by the Commissioner of Official Languages
Many participants felt that the Commissioner had an important role to play in raising public awareness of the importance and value of second-language learning at the university level in Canada.
It was emphasized that it would be important for the Commissioner to publish the results of this study, and take advantage of public opportunities and events to promote it.
It was also felt that the Commissioner had perhaps a champion role to play; the Commissioner should make the case to governments for the need to do more in this area, and to provide additional and dedicated funding for this purpose.
The Commissioner should also work with institutions and interested parties to advance the issue generally. This could include bringing people together, encouraging further work and study, for example on the different models and approaches, and supporting the testing of innovative approaches and the dissemination of information on best practices.
7.3.4 Suggestions for action by other parties
Suggestions for action by different organizations and interested parties included the following:
A conference or meeting should be organized to bring together all interested parties, including universities, students, •language experts and governments.
The AUCC could work with universities to explore different models and approaches, and examine how to promote •partnerships and collaboration.
The Council of Ministers of Education, Canada (CMEC) should develop overall university second-language learning policy objectives, •and examine issues around second-language requirements.
Canadian Parents for French could work with governments, institutions and other organizations in each province and territory to •encourage them to develop proposals tailored to their needs.
There needs to be better documentation of employers’ demand for knowledge of a second language.•
erasmus Program
A program that allows students to continue their studies for one semester in •another European Union country.
Participants benefit both academically and by acquiring language and •intercultural skills.
The program supports higher education institutions working together through •intensive programs, networks and multilateral projects.
Around 90% of European universities in 31 countries take part. •
Since its inception in 1987, 1.9 million students have participated in the •program. Each year an average of 200,000 students take part.
One of the objectives of Erasmus is to recruit 3 million Erasmus students by 2012.•
The new Erasmus Mundus program is an extension of the Erasmus program and •applies to exchanges worldwide.
28
8. concluSIon
Greater opportunities for second-language learning in Canada’s universities are essential if the country wants to offer a true continuum of opportunities for students to learn the other official language—beginning at the elementary level, continuing through the secondary and post-secondary levels, and leading to a labour market where second-language skills are recognized as having added value.
It will therefore be critical to move forward and build on the findings of this study in order to improve second-language learning opportunities for Canadian students at university.
At the same time, while the issues and key areas for action are clear, it must be acknowledged that moving forward in this area will be challenging.
The current economic and financial context is very difficult for Canada’s universities. Second-language learning does not appear to be a high priority in this context. Institutions are not feeling a strong demand from students yet, although the demand is there. And universities are facing the need to address multiple and competing priorities for attention in a time of diminishing resources.
While governments are generally supportive, neither the Government of Canada nor the provincial and territorial governments have given clear indications that they are prepared to champion the issue and drive it forward. They need to build on existing initiatives and strengthen them, as well as develop new ones, in a way that clearly signals that second-language learning is an essential part of post-secondary education for university students across the country.
It must also be remembered that the autonomy and independence of institutions must be respected, and that situations differ widely across institutions and regions of the country. No single approach will be appropriate in all instances.
While these are important challenges to consider, Canada cannot afford not to act to improve second-language learning at the university level.
Canada’s economy is increasingly a knowledge economy in a world of disappearing borders and intense international competition. Language skills are more important than ever in this context. Our linguistic duality is an important part of Canada’s brand in the world. Our young people know the importance of speaking a second and even a third language, and want to learn.
Knowledge of both official languages by more Canadians is important for Canadian identity and unity, and our effective functioning as a country.
Moving forward will require leadership, commitment and action by all parties.
29
9. recommendaTIonS
The following section sets out the recommendations of the Commissioner of Official Languages to governments, universities and other key partners.
9.1 First steps
ReCommendation 1: Making action happen
In order to ensure a follow-up to the conclusions and recommendations of this report, the Commissioner of Official Languages recommends that the Minister of Canadian Heritage and Official Languages, given his mandate to encourage and support the learning of English and French in Canada, convene a meeting of interested parties, including universities, educational organizations, language experts and governments, to discuss how to improve second-language learning opportunities in Canada’s universities and identify possible next steps and future actions.
9.2 recommendations for governments
Governments—both the Government of Canada and provincial/territorial governments—have a vital interest and an important role to play in promoting and supporting improved second-language opportunities at Canada’s universities.
To this end, governments should act in their own areas of responsibility and also work collaboratively together and with universities and other interested parties.
Specifically, governments should demonstrate leadership, develop and promote appropriate policies on second-language learning, bring different partners together to take action and make adequate financial assistance available to institutions.
ReCommendation 2: Making second-language learning a priority
The Commissioner of Official Languages recommends that the Minister of Canadian Heritage and Official Languages and provincial and territorial governments, through the Council of Ministers of Education, Canada, develop an overall policy statement recognizing second-language learning as an integral element of education at the university level in Canada, and encourage universities to offer enhanced second-language learning opportunities. This policy should identify improving second-language learning opportunities at Canada’s universities as a joint priority for action, and governments should enter into discussions on how to best collaborate to this end with each other and with universities and with other interested parties.
ReCommendation 3: a new fund
The Commissioner of Official Languages recommends that the Government of Canada and the provincial and territorial governments establish a new fund to provide financial assistance to universities to develop and implement new initiatives to improve second-language learning opportunities. This fund should not, however, diminish the existing support as well as the need for additional support of minority-language and bilingual institutions.
The fund should provide incremental funding above the currently allocated resources for the official languages in education agreements, and should include mechanisms for results-based accountability and public reporting, including agreed-upon performance indicators, as well as provisions to promote the mobility of students in Canada.
Priority should be given to initiatives that involve collaboration among English- and French-language institutions, particularly those in a minority-language situation as well as bilingual institutions, and to initiatives that foster opportunities for students to live and study in their second-language milieu. Support should also be provided for pilot projects and the dissemination of information about results and effective practices.
In the context of this fund, the Commissioner of Official Languages recommends that the Government of Canada and the provincial and territorial governments establish a new Canadian program to promote opportunities for students to study intensively in their second language at another Canadian institution. This program would be the Canadian equivalent of the successful Erasmus and Erasmus Mundus programs designed to foster co-operation across European universities, exchange and dialogue between cultures, and the mobility of students and academics, in order to prepare participants for life in a global, knowledge-based society.
30
The following recommendation is addressed to the Government of Canada with respect to second-language learning and the public service.
ReCommendation 4: the public service and universities
The Commissioner of Official Languages recommends that the Government of Canada, in the context of public service renewal, establish as a priority working with provincial and territorial governments and with universities to increase the pool of bilingual candidates for public service positions and ensure access for all Canadians.
In particular, the Commissioner recommends that
the Government of Canada accelerate the implementation of its commitment in the • Roadmap for Canada’s Linguistic Duality 2008–2013 to undertake a pilot project by the Canada School of Public Service to provide access to its learning products to Canadian universities, and extend the project to include additional universities;
the Public Service Commission work with universities to develop a language proficiency framework such as the Common •European Framework of reference for Languages to establish equivalencies between the public service exams and those used by universities, and explore the possibility of universities being able to pre-qualify students as meeting the different levels of linguistic requirements for public service positions;
the Government of Canada work with provincial and territorial governments and with universities to enhance the official-•language dimension of university programs that relate to the public administration of the country in the broader sense. This should include appreciation of linguistic duality and official-languages policy as a fundamental element of public policy and administration in Canada; opportunities for students in, for example, public administration, political science and law programs to improve their proficiency in their second language; opportunities to study in their second language in this field; and opportunities to study and work in their second-language milieu.
9.3 recommendations for universities
Canada’s universities have a primary responsibility to take action to improve second-language learning opportunities for young people. Canada’s universities need to better respond to their students’ needs and equip them for the job market. The following recommendations propose action by universities both individually and on a collective basis.
ReCommendation 5: taking action
The Commissioner of Official Languages recommends that individual institutions develop strategies and action plans to improve second-language learning opportunities in the context of each institution’s own situation and circumstances.
In particular, the Commissioner recommends that institutions develop and offer students more opportunities for intensive second-language learning, including second-language courses linked to their field of academic study, opportunities to study in their second language and opportunities to live and study in the second-language milieu and interact with persons from the other language group.
The Commissioner of Official Languages recommends that institutions place particular emphasis on developing inter-institutional collaboration and using technology to address these needs.
ReCommendation 6: exaMining different approaches
The Commissioner of Official Languages recommends that the Association of Universities and Colleges of Canada work with universities to explore different approaches to improve second-language learning opportunities by promoting enhanced partnerships and collaboration among institutions.
This could involve establishing a working group of interested institutions to examine key issues and to develop proposals and advice for university presidents and for governments, including proposals for pilot projects to test different models and approaches.
It could also involve establishing a working group of French-language institutions outside Quebec to examine issues and develop proposals relating to the attraction and integration of English-speaking students, and to enhance collaboration on second-language learning with English-language institutions.
31
ReCommendation 7: obtaining More inforMation
The Commissioner of Official Languages recommends that universities collect further information on the willingness and ability of professors to teach courses in the other language, and on students’ second-language learning objectives and interest in the kinds of opportunities that they would like.
Surveys and studies in this respect could be undertaken by individual universities, or collectively through the Association of Universities and Colleges of Canada and other interested parties.
ReCommendation 8: adopting second-language policies
The Commissioner of Official Languages recommends that universities adopt formal policies relating to second-language learning in the context of an overall strategy to enhance second-language learning.
The Commissioner also recommends that universities identify other ways and means to recognize the importance of second-language learning and demonstrate the value that they attach to it.
This could include, for example, developing new or strengthened second-language requirements as part of general university requirements or that are targeted to specific academic disciplines, recognizing the challenge of second-language learning through immersion or other forms of intensive study in the second language and taking such experience into consideration in assessing applications to university or to specific programs.
9.4 recommendations for further study and research
ReCommendation 9: further study
The Commissioner of Official Languages recommends that governments, universities, the private sector and other organizations undertake further research on second-language learning at the university level. This research could include documenting the following:
Employer and labour market demand for knowledge of a second language (governments, private sector organizations and •other interested parties);
Additional data and information relating to second-language learning in university, for example, second-language learning •experience and proficiency of students arriving at university or proficiency levels on graduation from university (governments, universities, the Association of Universities and Colleges of Canada, and other interested parties);
The experience, policies, models and effective practices of other countries with respect to second-language learning at •university (governments, the Association of Universities and Colleges of Canada and other interested parties).
32
aPPendIx
Members of the Advisory committee
name Position organizationDanièle Besner Director General Public Service Renewal, Privy Council Office
Margaret Bloodworth National Security Advisor to the Prime Minister and Associate Secretary to the Cabinet
Public Service Renewal, Privy Council Office
Denis Brière Vice-President Conference of Rectors and Principals of Quebec Universities
Mel Cappe President Institute for Research on Public Policy
Paul Cappon President and Chief Executive Officer Canadian Council on Learning
François Charbonneau Director General Association des universités de la francophonie canadienne
Monique Collette President Atlantic Canada Opportunities Agency
Paul Genest President Council of Ontario Universities
Michael Goldbloom Principal and Vice-Chancellor Bishop’s University
Daniel Guay Executive Assistant to the President Université du Québec
André Lamontagne Professor Department of French, Hispanic and Italian Studies, The University of British Columbia
Sylvie Lauzon Associate Vice-President, Academic University of Ottawa
David MacDonald Assistant Deputy Minister Learning Branch, Human Resources and Skills Development Canada
Tom Miller Coordinator Council of Ministers of Education, Canada
Pierre Moreau President Université du Québec
Claire Morris President Association of Universities and Colleges of Canada
Luc Rainville Executive Assistant to the President and Senior Advisor, Francophonie Affairs
Association of Universities and Colleges of Canada
Réal Roy Professor University of Victoria
James Shea Executive Director Canadian Parents for French
David Stewart-Patterson Executive Vice-President Canadian Council of Chief Executives
Jean-Jacques Van Vlasselaer Special Advisor to the Vice-President (Academic) and to the Vice-President (Research and International)
Carleton University