BREAKOUT OF LATVIAN: LANGUAGE POLICY IN A MULTILINGUAL SOCIETY. Prof. Ina Druviete

Transcription

1 BREAKOUT OF LATVIAN: LANGUAGE POLICY IN A MULTILINGUAL SOCIETY Prof. Ina Druviete Reykjavik, 14 September 2015

2 LANGUAGE POLICY Language policy is a broad over-arching term for decisions on the roles of particular languages in a given society. Language policy as part of domestic policy comprises the set of activities carried out by governments, political parties, societal groups in order to maintain or to change the functional distribution among languages spoken in a given territory, to establish the scope of collective language rights for language communities and to ensure the development and standardization of languages.

3 ASPECTS OF LANGUAGE POLICY 1) legal (judicial) aspect establishment of the constitutional status of languages and implementation of linguistic legislation (language laws or regulations), 2) educational aspect teaching of languages, the official language training for minorities in particular, 3) linguistic (normative) aspect scientific investigation of languages, standardization and codification of the official language.

4 LANGUAGE SITUATION Type of state; its political, social and economic organization. Geopolitical description of the territory. Ethnodemographic and linguistic structure of the population. Language status in the country. Sociolinguistic functions of the languages. Linguistic legislation. Individual bilingualism and multilingualism. Linguistic quality of languages.

5 AND... Global sociolinguistic processes. International standards of language policy. Priorities in country s domestic policy. Historical memory and language attitudes among the ethnosses. LANGUAGES IN CONTACT: LANGUAGE MAINTENANCE OR LANGUAGE SHIFT?

6 LANGUAGE COMPETITION: SOCIOLINGUISTIC FACTORS 1. Quantity of speakers (including L2 speakers). 2. Development of economy in the country. 3. Market for goods and services in the language, different economic (market) value of the languages. 4. Regional status, traditional use and learning in neighboring countries, historically established linguistic hierarchies. 5. Linguistic development (standardization, terminology, software etc.). 6. Language attitudes: traditions, images, stereotypes... Different position of languages among identity elements.

7 LANGUAGES IN THE EU 1) official and working languages (24), 2) Language with special status in the programmes (Luxembourgish) 3) Regional and minority languages: 45 "lesser used languages" in old member states,?? in new member states, 4) non- territorial languages (Yiddish, Romani) 5) diaspora languages of refugees and labor migrants.

8 LINGUISTIC DIVERSITY: EU Linguistic diversity is one of the European Union s defining features. Respect for the diversity of the Union s languages is a founding principle of the European Union. Promoting Language Learning and Linguistic Diversity: An Action Plan Brussels, 2003.

9 REPUBLIC OF LATVIA Founded on November 18, Incorporated in the Soviet Union Independence renewed on August 21, 1991 Member state of EU and NATO (since 2004) Territory km² Population - 2, (June 2013) Latvians 62.1%, Russians 26.9%, Belarusans 3.3%, Ukrainians 2.2%, Poles 2.1%, Lithuanians 1.2%, others 2.2% (2011 Census) Latvian = one of languages out of 7000 in the world spoken by more than one million of people. Languages in competition - Russian and English, two international languages with high economic value.

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11 THE LATVIAN LANGUAGE Belongs to the Baltic group of the Indo-European family of languages (the other Baltic language Lithuanian; the third Baltic language Old Prussian became extinct at the end of 17th century). First written texts in the 16th century. The only official State language in Latvia since 1921, status renewed in 1988.

12 LANGUAGE SITUATION IN 90s BEFORE INDEPENDENCE Shrinking of sociolinguistic functions of Latvian Ideology of Russian as the second mother tongue. Extensive use of Russian on administration. Low Latvian as L2 competence (20%) among minorities. Psychological resistance of Latvians. Russification of non-russian minorities. Ambigous nature of Soviet language policy (corpus planning vs. status planning) resulting on high linguistic quality of Latvian despite of restrictions of use.

13 WHY LATVIAN HAS BEEN PROCLAIMED THE SOLE OFFICIAL LANGUAGE? Latvia as a result of self-determination of Latvian ethnos. Continuation of Republic of Latvia established in The only territory where the Latvian language can survive and be developed. Latvia is a unitary country - not the federal one (like Belgium) or the one with special history and linguistic regulations (like Finland or Luxembourg).

14 INDEPENDENCE REGAINED! Status of Latvian in the Constitution (1988) Language Law (1989) Additions and Amendments to the Language Law (1992) Language Proficiency Certification Regulations (1992) Regulations of the State Language Inspection Board (1992) State Language Acquisition Programme (1995) Law on the State Language (1999) Official State Language Policy Guidelines ( ) Official State Language Policy Guidelines ( )

15 LANGUAGE POLICY GUIDELINES IN LATVIA To ensure the sustainability, linguistic quality and competitiveness of the Latvian language as the state language of the Republic of Latvia and the official language of the European Union in the market of languages in Latvia and the world. To guarantee the opportunity to preserve, develop and use the languages of minorities of Latvia. NB! Latvia is the only country of the world which can assume responsibility for protection and development of the Latvian language.

16 POSITIVE FACTORS FOR LATVIAN LANGUAGE MAINTENANCE Sufficient number of L1 speakers and growing number of L2 speakers. Legal status of the sole official state language. The use in all sociolinguistic functions. The dominant use in higher education. High linguistic quality of Standard language (developed stylistic system and terminology). Legal and financial mechanisms for language protection. Status as one of the official EU languages.

17 NEGATIVE FACTORS FOR LATVIAN LANGUAGE MAINTENANCE Linguistic self-sufficiency of Russian language speakers. High economic value of the main languages in competition. Insufficient and uneven enlargement of the environment of the Latvian language. Discrepancy between nominal and actual sociolinguistic functions of the State language and minority language (Russian). Decline of the quality of language in professional activities. Narrowing of the cultural environment of the language. Adverse linguistic attitudes among Latvians and minorities.

18 PERCENTAGE OF MINORITIES % of minorities Countries 0-5% Austria, Denmark, Greece, Portugal, Finland*, Ireland*, Belgium*, Cyprus*, Malta, Poland 5-10% France, Italy, Germany, Netherlands, Czech Republic, Hungary, Slovenia 10-20% UK, Sweden, Lithuania, Slovakia, Bulgaria 20-30% Spain 30-40% Luxembourg, Estonia, Romania 40-50% Latvia

19 ETHNIC IDENTITY LINGUISTIC IDENTITY Only Latvians (97.1%) and Russians (98.5%) declared the respective language as native. 83% of Jews, 71% of Belarusans, 65% of Ukrainians, 60% of Poles, 12% of Lithuanians declared Russian as their native language. The Russian minority has linguistically assimilated the majority of representatives of other minorities, especially in Latgale and Rīga. Urban multilingualism: Latvian, Russian. English, German (as foreign languages) and Polish (as minority language) are sporadically represented in some sociolinguistic domains.

20 SELF-SUFFICIENCY OF RUSSIAN- LANGUAGE SPEAKERS Russian as the only language of communication is used by 19% residents of Latgale and 14,5% of Rīga. 40% of Latvia s economically active population live in a working environment which compensates the inconveniences created by language incompetence. Such protection zones are more marked in the Latvian language environment in Kurzeme and Vidzeme and in Russian language environment in Latgale and Rīga.

21 LATVIAN LANGUAGE SKILLS AMONG MINORITIES (48% - good, 8% - no skills)

22 CAN YOU COMMUNICATE IN LATVIAN? (State institutions - 82%, municipal - 81%, health care - 76%, public transport - 53%, shops - 48%) Vienmēr vai gandrīz vienmēr latviski Latviski nedaudz biežāk nekā citās valodās Citās valodās ievērojami biežāk nekā latviski Latviski ievērojami biežāk nekā citās valodās Citās valodās nedaudz biežāk nekā latviski Jautājums uz respondentu neattiecas / Grūti pateikt/ NA Valsts iestādēs 82% 12% 5% Pašvaldību iestādēs 81% 11% 5% Veselības aprūpes iestādēs 76% 15% 5% 3% Publisko pasākumu laikā 56% 24% 10% 4% 6% Transporta pakalpojumos 53% 22% 12% 8% 4% Tirdzniecības vietās 48% 27% 12% 9% Mācību iestādēs 46% 6% 47% 0% 10% 20% 30% 40% 50% 60% 70% 80% 90% 100% % no bāzes Bāze: Dzimtā valoda - latviešu (n=557)

23 RESEARCHER S AND POLITICIAN S DILEMMA How to promote Latvian language skills, use and positive language attitudes in the situation of implementation of full scope of minority language rights and linguistic self-sufficiency of Russian language speakers, immigration situation and Russia' s media environment?

24 LAW ON THE OFFICIAL STATE LANGUAGE (1999)

25 Language use in informal communication The Law shall not regulate the use of language in the unofficial communication of the residents of Latvia, the internal communication of national and ethnic groups, the language used during worship services, ceremonies, rites and any other kind of religious activities of religious organisations. 2(3). State Language Law, 1999, Art.

26 Language use in State and municipal institutions 101. Every citizen of Latvia has the right, as provided for by law, to participate in the activities of the State and of local government, and to hold a position in the civil service. Local governments shall be elected by Latvian citizens who enjoy full rights of citizenship. The working language of local governments is the Latvian language. Constitution of the Republic of Latvia, am. on 30 April 2002

27 Language use in public activities (1) Events organised by state and municipal institutions, courts and agencies belonging to the judicial system, state and municipal enterprises, as well as by companies in which the state or a municipality holds the largest share of the capital, shall be conducted in the state language. Should a foreign language be used, translation into the state language shall be provided by the organiser. State Language Law, 1999, Art. 11

28 LANGUAGE USE IN EDUCATION

29 EDUCATION SYSTEM IN LATVIA

30 GOVERNANCE OF EDUCATION

31 LAW ON EDUCATION (1998) Article 9. Language of acquiring of education (1) At state and municipal education institutions education shall be acquired in the state language. (2) Education may be acquired in another language: 1) at private education institutions; 2) at state or municipal education institutions which implement education programs of national minorities. The Ministry of Education and Science shall determine the subjects of these programs which have to be taught in the state language; 3) at education institutions prescribed by special laws. (3) Every person to be educated, in order to acquire primary or secondary education, shall master the state language and take examinations of the state language to the extent and in accordance with a procedure set by the Ministry of Education and Science. (4) Examinations for professional qualification shall be taken in the state language.

32 MAIN PRINCIPLES OF MINORITY EDUCATION The EU member states are responsible for the protection of linguistic diversity. Minority education is an integral part of general education system. Educational aspects of language policy goes hand in hand with the legal and linguistic aspects of language policy. Latvia is developing an inclusive society promoting minority bilingualism based on profound mother tongue skills and developed Latvian language skills. Latvia provides state-financed education in 8 languages in primary school, in 6 languages in secondary school februāris

33 INDEPENDENCE REGAINED: STAGE Language Law: Article 13. In all education establishments in the Latvian SSR with language of instruction other than Latvian the Latvian language is taught. The graduates of secondary schools, secondary vocational schools and universities have to pass the Latvian language exam establishment of first minority schools: Polish, Ukrainian, Hebrew school in Riga, Polish school in Daugavpils. Ķīmijas NEP, 2014.gada 19.februāris 33

34 STAGE Language Law: Article 10. The right to receive education conducted in the state language is guaranteed in the Republic of Latvia. Residents belonging to national minorities also have the rights to receive education in their mother tongue common education standards were developed, common system of examination including centralized exams and state tests in grades 3, 6, 9 were developed, textbooks in two languages were published, intensive Latvian language classes for teachers were provided; several thousands of teachers passed Latvian language proficiency certification. Ķīmijas NEP, 2014.gada 19.februāris 34

35 STAGE Law on Education: establishes teaching of 2 subjects in Latvian in primary school (Grades 1-9) establishes teaching of 3 subjects in Latvian in secondary school (Grades 10-12) New Law on General Education establishes: programmes of bilingual education (4 models). Ķīmijas NEP, 2014.gada 19.februāris 35

36 STAGE 4 Since 2004: «60 : 40» system in secondary schools. Since 2008 contents of the exams in the Latvian language. Ķīmijas NEP, 2014.gada 19.februāris 36

37 SCHOOLS AND PROGRAMMES 105 schools are implementing minority education programmes: School year 2013./2014: 99 schools Russian + Latvian, 4 Polish + Latvian, 1 Ukrainian +Latvian, 1 Belarusan + Latvian Also: Lithuanian (1 school), Estonian (1 school), Hebrew (2 schools) language and culture 67 schools are implementing Both programmes with Latvian and minority language as main language of education 2 private schools are implementing 15 evening and distanceeducation schools are implementing General education programmes in English (1 school) and French (1 school) Both programmes with Latvian and minority language as main language of education Several schools are providing minority education programmes for Roma students % of students are involved in minority education programmes 17.5 % of teachers teach in minority education programmes 37

38 MINORITY EDUCATION PROGRAMMES 5.modelis (skolas) 13% Models 1-5 (%) 1.modelis 5% 4.modelis 5% 3.modelis 35% 2.modelis 42% 5.modelis (skolas) Models (%) 13% 4.modelis 5,60% Latvian % Russia n/ Latvian % Other/L atvian % Languages in education: 71,63 27,41 0,98 3.modelis 2.modelis 1.modelis 5% 34,80% 41,60% 38

39 Languages in minority education programmes 70,00% 60,00% 50,00% 40,00% 30,00% 20,00% 10,00% 0,00% Model 1 (%) 1.kl. 2.kl. 3.kl. 4.kl. 5.kl. 6.kl. 7.kl. 8.kl. 9.kl. Latviski 18,20% 17,40% 16,70% 46,20% 39,30% 46,70% 56,30% 61,80% 61,80% Bilingvāli 36,40% 34,80% 33,30% 7,70% 28,60% 23,30% 18,80% 14,70% 14,70% Mazākumtautību 45,50% 47,80% 50% 46,20% 32,10% 30,00% 25,00% 23,50% 23,50% 70,00% 60,00% 50,00% 40,00% 30,00% 20,00% 10,00% 0,00% Model 2 (%) 1.kl. 2.kl. 3.kl. 4.kl. 5.kl. 6.kl. 7.kl. 8.kl. 9.kl. Latviski 18,20% 17,40% 16,70% 15,40% 14,30% 13,30% 15,60% 14,70% 14,70% Bilingvāli 54,50% 52,20% 50% 53,80% 53,60% 0 59,40% 50% 50% Mazākumtautību 27,30% 30,40% 33,30% 30,80% 32,10% 30% 25% 35,30% 35,30% 39

40 Languages in minority education programmes 70,00% 60,00% 50,00% 40,00% 30,00% 20,00% 10,00% 0,00% Model 3 (%) 1.kl. 2.kl. 3.kl. 4.kl. 5.kl. 6.kl. 7.kl. 8.kl. 9.kl. Latviski 27,30% 30,40% 33,30% 46,20% 46,40% 43,30% 50% 44,10% 64,70% Bilingvāli 13,60% 0 8,30% 7,70% 0% 3,30% 0% 0% 0% Mazākumtautību 59,10% 56,50% 58,30% 46,20% 53,60% 53,30% 50% 55,90% 35,30% 90,00% 80,00% 70,00% 60,00% 50,00% 40,00% 30,00% 20,00% 10,00% 0,00% Model 4 (%) 1.kl. 2.kl. 3.kl. 4.kl. 5.kl. 6.kl. 7.kl. 8.kl. 9.kl. Latviski 18,20% 17,40% 16,70% 15,40% 14,30% 13,30% 43,80% 0 41,20% Bilingvāli 0% 0% 0% 0% 0% 0% 31,30% 35,30% 35,30% Mazākumtautību 81,80% 82,60% 83,30% 30,80% 32,10% 30% 25,00% 23,50% 23,50% 40

41 OUR GOAL - TRUE BILINGUALISM

42 HIGHER EDUCATION: KEY PROBLEMS Common (international) development of multilingualism in higher education. Almost common - usage of «national» language in higher education. (Almost) specific for Latvia 1) usage of English, 2) usage of minority languages, i.e. Russian in higher education.

43 STRUCTURE AND TYPOLOGY OF HIGHER EDUCATION ESTABLISHMENTS Universities 6 (University of Latvia, Rīga Technical University, Rīga Stradins University, Agricultural University of Latvia, Daugavpils University, Liepāja University). Academies 9 Other HEE 19 Colleges 26 Public (state) HEE (excluding colleges) 17 Private HEE (excluding colleges) 16

44 NUMBER OF STUDENTS 2013/14 (total number ) Students of 19 state HEI (62%) Students of state colleges (5%) Students of 15 private HEI (28%) Students of private colleges (5%) Full time students (65%) Part time students (35%) Students financed by state (35%) Studying for the fee (65%)

45 PROBLEMS TO BE SOLVED 1. Proportion of students in population (in order to fulfil 40% target the absolute numbers must not fall under ). 2. Coordination with job market (out of all state finances study places 25.6% go for engineering, 18.4% for health and social care); although we must not neglect humanities! 3. Internationalization of studies and research, incl. language issues. 4. Sinergy among education, research and innovation policies. 5. Financing models and their effectiveness.

46 LAW ON INSTITUTIONS OF HIGHER EDUCATION (AMENDED IN 2011) 56(3) The study programmes of State-founded institutions of higher education shall be implemented in the official language. The use of foreign languages in the implementation of study programmes shall be possible only in the following cases: 1) study programmes which are acquired by foreign students in Latvia, and study programmes, which are implemented within the scope of co-operation provided for in European Union programmes and international agreements may be implemented in the official languages of the European Union. For foreign students the acquisition of the official language shall be included in the study course compulsory amount if studies in Latvia are expected to be longer than six months or exceed 20 credit points;

47 2) not more than one-fifth of the credit point amount of a study programme may be implemented in the official languages of the European Union, taking into account that in this part final and State examinations may not be included, as well as the writing of qualification, bachelor and masters works; and 3) study programmes, which are implemented in foreign languages are necessary for the achievement of the aims of the study programme in conformity with the educational classification of the Republic of Latvia for such educational programme groups: language and cultural studies and language programmes. The licensing commission shall decide the conformity of the study programme to the educational programme group.

48 ENGLISH LANGUAGE PROGRAMMES The number of foreign students in Latvia is considerably smaller when compared to with the potential possibilities to offer educational service and compete both in the higher education market in Europe and Asia. In the study year 2012/2013 there were 2617 international students (or 3% out of the total number) in Latvia; out of them 1274 studied at the six biggest universities. In the study year 2013/2014 there were 4477 international students (or 5% out of the total number) in Latvia. There are 32 BA study programmes, 46 MA study programmes, 5 doctoral study progrmmes in English out of appr. 800 programmes in total.

49 WHY THE DOMINANCE OF LATVIAN IN HIGHER EDUCATION ESTABLISHMENTS HAS DECISIVE IMPACT ON THE WHOLE SYSTEM OF LANGUAGE POLICY?

50 DOMAIN LOSS IN HIGHER EDUCATION WILL HAVE A DITECT IMPACT ON: the other sociolinguistic domains, e.g. science, quality of language in general (terminology, academic writing, scientific popular literature, the language use and teaching/learning ideologies and practices in all the hierarchically subordinated education system.

51 SYSTEM OF EDUCATION Primary education Basic education Secondary education Vocational education Higher education - 1 st level higher education (college) - BA studies - MA studies - PhD studies Lifelong education

52 "It needs to be recognised that the trend in non-english speaking countries towards teaching through the medium of English, instead of through the national and regional language, may have unforeseen consequences for the vitality of those languages". (A new Framework Strategy for Multilingualism, 2005) Universities in Latvia have to ensure high-level multilingualism both among students and staff avoiding subtractive bilingualism and allowing students to function at the international arena and protecting national identity at the same time!

53 EFNIL DECLARATION 2007 Communicative competence in languages (= first language plus two other languages) should be the minimum goal within the primary and secondary educational system of each country. If the learner s first language is not an official language of the country, one of the two additional languages should be an official language.

54 ASPECTS FOR ANALYSIS Legal aspect Constitution, Law on State language, Law on Electronic Mass Media etc. Political aspect language issues in the political programmes of different parties. Sociolinguistic aspect impact on language skills, language use and language attitudes in a given language situation.

55 LAW ON IMMIGRATION Raising numbers of immigrants and guest workers mostly from Russia, Ukraine, Moldova - having Russian language skills. Employed in workplaces where employees are not subjected to official language proficiency certification. Supporting selfsufficiency of Russian language speakers.

56 REFERENDUM (75% voted for Latvian as the sole officical language) Legitimate demand? Inspired action? Failure of societal integration? Provoked confrontation? Real threats for Latvian?

57 The actual hierarchy of languages in multilingual societies can better be described by their sociolinguistic functions rather than by their legal status.

58 IT IS IMPOSSIBLE TO HAVE SEVERAL OFFICIAL LANGUAGES IN UNITARY STATE WITH EQUAL STATUS, SOCIOLINGUISTIC FUNCTIONS AND PRESTIGE. EXPANSION OF RUSSIAN LANGUAGE RIGHTS IS POSSIBLE ONLY AT THE EXPENSE OF LATVIAN. THEREFORE LATVIAN MUST REMAIN THE ONLY OFFICIAL LANGUAGE!

59 SMALL OFFICIAL LANGUAGES Small official languages of the EU form a special group not sufficiently protected neither by market forces (as socalled international languages), nor by international declarations, charters or conventions (as minority languages).

60 CAN WE FIND A SOLUTION? National identity vs globalization Formal equality of languages vs actual language use Language as instrument vs language as symbol Integrative value of the language vs economic value of the language?

61 Minority language rights AND inclusive society!

62 It is necessary to develop both dimensions: centralized EU activities and activities in the member-states. There is an urgent need for more definite language policy in the European Union taking into account sociolinguistic realities.

63 THANK YOU! Ina Druviete