French Second Language Education in Ontario. Report and Recommendations To the Ontario Minister of Education

Transcription

1 French Second Language Education in Ontario Report and Recommendations To the Ontario Minister of Education Canadian Parents for French (Ontario) February Dundas Street East, Suite 103, Mississauga, Ontario L4X 1M2

2 Table of Contents Introduction 3 FSL Programs in Ontario 4 FSL Student Enrolment in Ontario 5 Accountability 7 Funding 8 Equitable Access 9 Program Quality 10 Students with Special Needs 13 Students with English as a Second Language 14 Transportation 15 Attrition 17 Appendix A FSL Models Appendix B FSL Enrolment in Ontario Appendix C Time on Task Outcomes (S.Lapkin) Appendix D Edmonton Study on FSL Proficiency Appendix E Preliminary Transportation Report; Transportation Allocations; Total and FI Students Enroled and Transported; SB 14 and SB attachment Appendix F FSL Allocations to School Boards Appendix G Renewal Funds communications and allocations Appendix H FSL Grant Summary Attachment 1 State of FSL Report 2006 (Print and CD) Attachment 2 Ontario Schools offering French Immersion and Extended French Attachment 3 Canada-Ontario Agreement on Minority Language Education and Second Official Language Instruction to and the Action Plan: Regular Programs and Additional Strategies, March 2006 Attachment Transportation Study by Fran Sutton CPF York Region Chapter Attachment 5 The Canadian Modern Language Review, Volume 63, No. 5, August 2007 Wally Lazaruk - Linguistic, Academic, and Cognitive Benefits of French p. 605 Fred Genesee - French and At-Risk Students: A Review of Research Evidence p. 655 Callie Mady Allophone Students in French Second-Official-Language Programs p

3 INTRODUCTION Canadian Parents for French (CPF) is the national network of volunteers that values French as an integral part of Canada and is dedicated to the promotion and creation of French second language learning opportunities for young Canadians. Canadian Parents for French (Ontario) is the provincial Branch of the national organization and has over 30 local Chapters throughout the province supporting the needs of children and parents who want their children to learn both of Canada s official languages. More than 25,000 CPF members across the country value commitment to our mandate, the acquisition and dissemination of knowledge, and the taking of initiative and responsibility so that we achieve credibility and effectiveness. We participate in a collaborative capacity with our partners and other stakeholders in French as a second language education and in a consultative capacity using evidence-based research, data acquisition and anecdotal evidence. This report outlines key issues as they relate to French as a second language education in Ontario. A summary of each issue is provided along with recommendations for the Ontario Minister of Education s consideration as a step in the on-going consultation process identified in the Canada-Ontario Agreement on Minority Language Education and Second Official Language Instruction ( to ). 3

4 FRENCH SECOND LANGUAGE PROGRAMS IN ONTARIO French Second Language (FSL) programs are designed for students whose parents have no or little knowledge of the French language. The FSL programs currently offered by the English language school boards in Ontario are listed below in order of increasing intensity. Core French Core French, often referred to as basic French, is a mandated program in Ontario from Grade 4 to Grade 9. A child in Core French will receive a total of 600 hours of French instructional time in elementary school and one credit in Grade nine. Intensive Core French is currently being offered in eight Grade 5 classrooms in Ontario as a pilot program. Children in this program will experience an intensive period of French instruction for one half of the school year. They will receive approximately accumulated hours of French instructional time in elementary school, one mandated credit in Grade 9 plus the option of three elective credits in secondary school. Extended French The Extended French Programs can begin in grades 4, 5, 6 or 7. French is the language of instruction for one or two subjects in addition to a French language class. Students in this program will receive 1260 hours of French instructional time in elementary school and must complete seven credits in secondary school. French Immersion The French Immersion programs vary in intensity from 100% French instructional time to 50% French instructional time. Students enroled in a 50% French Immersion program will receive 3800 hours of French instructional time in elementary school and must complete 10 credits in secondary school. Students enroled in the Early French Immersion program will typically receive hours of French instructional time and must complete 10 credits in secondary school. A few school boards offer an Honours French Immersion program with up to 16 credits offered at the secondary level. See Appendix A: FSL models 4

5 FSL STUDENT ENROLMENT IN ONTARIO The Federal Action Plan set an ambitious objective of doubling the number of functionally bilingual high school graduates by Subsequently, the Ontario Ministry of Education s Action Plan: Regular Programs and Additional Strategies ( to ) stated a provincial goal to increase student participation and retention in FSL programs. The Ministry also outlines the expected outcomes of improved access to all FSL programs and increased capacity of Englishlanguage school boards to deliver French Immersion programs. The projected Federal and Provincial contribution allocations for FSL regular programs and additional strategies attached to the Ontario Action Plan total $957,470,228 over a four-year period from 2005 to Listed below are the latest student enrolment figures available from the Ministry which serve as an early indicator of progress made to date and identify current trends in enrolment in the French Second Language (FSL) programs presently offered in the province. Student enrolment in FSL programs in Ontario (Source: Ministry of Education Ontario) CORE French 871, , , ,033 EXTENDED French 32,140 33,720 34,697 31,064 French IMMERSION (FI) 115, , , ,659 TOTAL FSL Enrolment 1,019,072 1,009,763 1,003, ,756 ELIGIBLE enrolment 2,072,589 2,039,586 2,034,065 2,028,469 FI as a % of Eligible Enrolment 5.6% 5.6% 5.7% 6.0% Eligible student enrolment (student population in the English language school boards) has been edging downward over the past four years. In contrast, French Immersion enrolment increased by 5.1% in in comparison to and by 5.4% compared to the average of the previous three years. This increase in enrolment coincides with the first year of funding allocated under the Ontario Action Plan. Core French enrolments continue their consistent downward trend and are eroding faster than the general student population. Overall, 49% of the eligible students in Ontario are enrolled in a FSL program, slightly lower than the national average of 56% (excluding NWT and Nunavut). Students taking French Immersion in Ontario represent 6% of the eligible student enrolment. With the national average at 7.7%, Ontario ranks ninth among the provinces and two territories (Nunavut is excluded) as at Detailed enrolment statistics are attached in Appendix B. 5

6 Number of School Sites Offering French Immersion/Extended French in Ontario (Source: CPF (Ontario) data collection) % increase % increase Elementary sites % % 669 Secondary sites % % 238 TOTAL number of sites % % 907 Overall French Immersion or Extended French programs have been expanded to 45 additional sites since representing an average rate of annual increase of 2.6%. While the increase in the number of sites and the increase in enrolment in FI/EF are encouraging, we know that the demand for these programs and potential enrolment is much higher. According to the Canadian Council on Learning 2007 Survey of Canadian Attitudes Toward Learning 25% of parents surveyed said they did not enrol their children in French because they did not have access. 6

7 ACCOUNTABLITY The Ministry of Education, school boards and staff, teachers, parents and students, indeed everyone, has contributed greatly to Ontario s accomplishments in FSL education. All partners have a stake in ensuring its continued success, and accountability to all stakeholders must therefore be the underlying principle in any effort to plan for the future. Accountability implies transparency in the spending of public funds, openness in the evaluation of current programs and inclusiveness in the process of determining future program plans. Currently, there is no policy requiring school boards to report publicly on the spending of FSL federal and provincial funding dollars. Parents are rarely informed of school board-level FSL reviews, and even more rarely involved in medium and long-term FSL strategic planning in their schools and school boards. There are many experts on French Second Language education and engaging them in decisionmaking processes will help guarantee the quality and sustainability of programs well into the future. The current Federal-Provincial Protocol Agreement clearly states the need for ongoing consultation with FSL stakeholders and specifically mentions Canadian Parents for French. It refers to ongoing reporting that will be available in a timely fashion. The Ontario Ministry of Education has the lowest ratio in Canada comparing the number of Ministry staff dedicated to FSL programming to the number of school boards. It is the position of CPF (Ontario) that: The Ministry of Education and school boards be accountable for FSL policy and be transparent in their allocation and expenditure of federal and provincial FSL funds. Consultation should be open, inclusive and documented. RECOMMENDATIONS: 1. That the Ministry of Education develops a policy requiring school boards to report publicly on the spending of federal and provincial FSL allocations and expenditures and to submit an annual expenditure report of these funds to the Ministry of Education which would be available to parents/guardians/teachers/trustees and administrators. 2. That the Ministry of Education establishes program staff positions at the Ministry of Education to develop, support and review FSL programs that are consistent with those in place for French First Language, English as Second Language and native language programs. 3. That the Ministry of Education monitors school boards financial expenditures of FSL funds. 4. That the Ministry of Education requires school boards to adhere to and monitor the French instructional time required to meet the criteria for FSL program funding. 5. That the Ministry of Education establishes a mechanism to measure oral proficiency in all FSL programs using research methods and recognized FSL researchers. 6. That the Ministry of Education encourages school boards to establish a local French Advisory Committee to review the expenditure of French Second Language Funds and to develop medium and long-range program plans. 7. That the Ministry of Education establishes a multi-stakeholder Provincial Advisory Committee to meet three times annually to review and assess current programs, identify best practices, and work with school boards and School Board FSL Advisory Committees to strengthen FSL programming. 7

8 FUNDING The current federal FSL funding formula has not changed since 2002 and will need to be adjusted to meet current realities and future needs. With more and more people from diverse backgrounds and educational abilities clamoring to learn French, the demand for teachers, resources, learning assistance, program delivery models and French cultural enhancement will only continue to increase. The recommendations depend heavily on an ongoing and strategic allocation of funding across a broad range of priorities. Canadian Parents for French believes that increased funding to French second-language education programs is critical to improving program quality, increasing student enrolment and retention, keeping pace with inflation and new material and technology costs, and meeting the current challenges in FSL education. RECOMMENDATIONS 1. Renew the Canada-Ontario Agreement on Minority Language Education and Official Language Instruction and FSL Renewal Funding for French Immersion revitalization and Core French improvements. 2. Adjust the FSL funding formula so that FSL contributions are proportional to the instructional hours that students receive in each program. 3. Adjust the FSL funding formula to ensure that additional funding is allocated to rural and remote communities to offset challenges suffered from having small class sizes and greater geographic distances. 4. Establish a new multi-year fund, administered by the Ministry, to develop an online delivery model for remote FSL learning applications. 5. Establish and administer a fund to encourage rural districts to start or expand FSL programs. 6. Restore Primary Core French funding eliminated by the Ministry of Education in 1998 and expand funding to Early Years Core French (JK- SK). 8

9 EQUITABLE ACCESS 993,756 students are currently enrolled in French second language programs in Ontario, 84.6% of which are in Core French. With 121,659 students enrolled in French Immersion and over 31,000 in Extended French, access to these programs is not yet guaranteed. Seven school boards in Ontario still do not offer French Immersion or Extended French. Several school boards routinely apply caps or lotteries, screening and proficiency testing, and other practices aimed at limiting French Immersion enrolment. Transportation is sometimes denied or travel times run as high as 3 to 4 hours daily for young students enrolled in FSL programs of choice leading to those living at greater distances being less likely to enroll. The Ministry of Education does not have a provincewide policy guaranteeing students access to French Immersion and there are only a few school Boards in Ontario that have such a policy in place. Multiple entry points (Early, Middle and Late) for French Immersion are important in areas where there is high population mobility and immigration such as Ottawa and Toronto. Students coming from other countries or provinces are faced with many challenges and it is important that they leave school with the tools to enter the Canadian workforce. For many Canadians, the ability to communicate well in both official languages is a significant advantage. We must ensure that all Ontarians have the opportunity to acquire these skills. It is the position of CPF (Ontario) that: All Ontario students, including students of newly arrived immigrants and new residents to the province, have a right to access quality Core French, Extended French and French Immersion programs as a means of learning both of Canada s official languages. RECOMMENDATIONS: 1. That FSL programs be referred to as Official Language Programs rather than programs of choice. 2. Establish a provincial policy that ensures that all school boards provide a choice of French official language programs to students from kindergarten through grade Establish a provincial policy that ensures that all school boards offer French Immersion and guarantee universal access, eliminating lotteries, capping practices, screening and proficiency testing, and other practices aimed at limiting enrolment. 4. Establish a provincial policy guaranteeing transportation for students in all FSL programs of choice and provide funding to cover these costs. 5. Establish a provincial policy for new FSL programs or expansions that is consistent with the policies of other language programs (such as Native language policy with a minimum of 8 students) to open a new FSL class, particularly in the secondary panel. 6. Develop a special advisory position on FSL programs within the Ministry of Education that is mandated specifically to support school boards in their efforts to introduce and expand FSL programs. 7. Provide funding, support and requirements for school boards to increase the number of French Immersion programs and spaces across the province. Direct funding to rural and remote communities to subsidize start-up and retention costs for new FSL programs. 9

10 FSL PROGRAM QUALITY Core French and Intensive Core French Increasing the number of functionally bilingual graduates in Ontario necessarily means addressing Core French which, with over 841,033 students enrolled, is by far the most common approach to learning French in the province. The quality of Core French education, however, is often inadequate to this task, offering far fewer hours of instruction in French than other FSL programs. The situation is exacerbated by the fact that most Core French teachers do not have a designated classroom and are required to cart materials from one class to the next. Neither the teachers nor the students are well-served through this strategy. The current operational implementation of Core French instruction negatively impacts language acquisition through reduced access to media resources and to instructional space dedicated to language learning, as well as poor teacher working conditions. Innovation and re-orientation of Core French language learning with a focus on student proficiency outcomes is required. Four school boards are currently offering Intensive Core French as pilot programs. This delivery model offers a complementary enhancement to the existing Core French program but cannot be mistaken for an alternative to French Immersion or even to Extended French. French Immersion and Extended French French Immersion is offered with Early, Middle and Late entry points to suit the needs of the province s diverse population demographics. Early French Immersion remains the best option within the English school boards for achieving the highest level of proficiency in French. Some school boards in Ontario have diminished the number of hours taught in French Immersion to 50% of the students overall hours of instruction, the bare minimum to still qualify for supplemental funding per student in the program. This decrease in instructional time in French impacts on students final level of proficiency in the French language. Secondary schools offering French Immersion are also inconsistent in the total number of credits offered in French. Extended French offers middle and late entry points for students. Students in Extended French will receive fewer hours of instructional time in French reflected in lower proficiency outcomes. Results of a study by Dr. Sharon Lapkin (University of Toronto, OISE) correlating the number of hours of French instructional time to proficiency outcomes are included in Appendix C. EQAO Initially French Immersion students were exempt from taking the Grade 3 EQAO tests as it was felt that the test was inappropriate for students being taught 100% in French up to Grade 4. Many school boards have now introduced instructional time in English to prepare the children for the grade 3 EQAO test, thus compromising the total number of hours of French instruction and the proficiency outcomes. Student Proficiency and Benchmarks While we know that student proficiency outcomes are directly related to the number of hours of instruction received in French, currently no proficiency tests or benchmarks are available in Canada. The Edmonton School Board recently completed a study funded by the Department of Canadian Heritage using the Canadian Civil Service Exam to determine proficiency levels of students in various FSL programs. A summary of the study results are attached as Appendix D. A subcommittee of the Council of Ministers of Education, Canada (CMEC) has been established to study language portfolios such as the European Framework. Also, the Edmonton Public School Board is currently conducting a pilot project on the European style portfolios. 10

11 Resources FSL programs in Ontario lack instructional, cultural and technology resources to provide quality programming. There is evidence that FSL funding is considered flexible by many school boards and is being re-allocated to meet other school board needs. FSL Teachers in Ontario With an average annual increase of 1.3% per cent in French Immersion enrolment over the last five years, the demand for additional, bilingual FI teachers is expected to increase by a minimum of 250 by On the other hand, current enrolment in Core French in Ontario has decreased on average by 1.67% over the same period. Attracting bilingual teachers to remote or rural areas of the province is a challenge. Students receive instruction from teachers with varying degrees of proficiency in French. Working conditions for most FSL teachers in Ontario are not equitable with those teaching other subjects. Few Core French teachers have a designated class of their own and are required to cart materials from one classroom to another. Qualified teachers regularly conceal their French credentials and opt to teach other subjects in English in order to avoid poor working conditions and to maintain morale in the profession. It is the position of CPF (Ontario) that: All FSL programs deliver high quality language experiences for students with relevant and authentic resources, access to information technology and media, qualified proficient staff and cultural enhancement RECOMMENDATIONS: 1. Implement a policy requiring school boards and schools to report on compliance with Ministry of Education FSL guidelines. 2. Continue to fund FSL programming with a view to providing additional resources, technology and cultural enhancement. 3. Continue to support research and conduct a review of the Core French curriculum and pedagogy with a view to extending the total number of hours of instruction by introducing an early entry point for Core French focused on oral language acquisition. 4. Develop grant incentives and encourage school boards to adopt other delivery models that will help meet expected FSL program outcomes. 5. Recognize various forms of professional development for FSL teachers including funded interprovincial exchanges and opportunities to upgrade their French skills and proficiency. 6. Provide funding for professional development for FSL teachers and training in appropriate FSL delivery models that will help meet the expected FSL program outcomes. 7. Investigate and implement strategies for improving the working conditions of FSL teachers, with the preliminary support of a multi-stakeholders advisory committee. 8. Specify FSL teacher qualifications, including French-language proficiency and subject competence for all FSL programs. 9. Increase bursary funding for post-secondary students entering the FSL teaching profession. 10. Develop a province-wide campaign to encourage secondary students to continue their education in French and promote enrolment in post secondary FSL teaching programs. 11. Establish a policy exempting all Grade 3 French Immersion students from the Reading and Writing Grade 3 EQAO test and offer the Math EQAO Grade 3 test in French. 11

12 12. Continue to collaborate with stakeholders to investigate the adoption of the European Framework as a means of establishing benchmarks for oral communication proficiency and written proficiency for FSL programs. 13. Collaborate with stakeholders including Canadian Parents for French (Ontario) on all FSL program reviews. 12

13 STUDENTS WITH SPECIAL NEEDS Students with special needs, learning challenges or lower academic ability are often discouraged from enroling in French second language programs by teachers, administrators, and concerned parents. Some school board policies discourage students with learning difficulties to continue in FSL programs, allowing students to opt out of French if personnel feel they are unable to meet the learning outcomes. Many parents are advised by school board personnel lacking knowledge or expertise in second language learning that French Immersion or Core French is unsuitable for their child- sometimes even before they are enrolled. Yet researchers have consistently found that below-average students in Immersion score at the same level as below-average students in the English program on English language and academic achievement tests (Genesee, In Press 2007). In other words, students with lower academic ability do no worse academically than their English-program peers, but experience the additional cognitive and employment benefits that bilingualism offers. Nonetheless, support for struggling students in FSL programs is minimal in most communities, and is nowhere equitable to the support human and material that students in the English program receive. It is the position of CPF (Ontario) that: All students requiring remedial or gifted support are provided with such support to allow them to continue to succeed in all FSL programs. RECOMMENDATIONS 1. Require school districts to end the practice of counseling-out students with special needs or lower academic abilities from enrolling in French Immersion or Extended French programs. 2. Require school districts to provide Specialist Education services and support to all students with lower academic abilities and learning difficulties in the French program of their choice. 3. Develop policy requiring school boards to provide support to Immersion students with learning challenges equal to that provided to their English-track peers. 4. Provide funding and professional development to support these policies. 5. To articulate clearly to school boards that French Immersion is not gifted programming. 13

14 STUDENTS WITH ENGLISH AS A SECOND LANGUAGE Students whose first language is neither English nor French are routinely discouraged from pursuing any French language program, based on a faulty premise that students must learn English before another language. Many new Canadians expect to have their children learn both official languages simultaneously, as they are often already multilingual families who recognize the benefit of language learning. Many immigrant parents find their children enrolled in English programs by default and have not had program options explained to them. New research studies indicate that allophone students in French programs learn English well, and moreover, that in standardized tests, perform as well as or better than their English-speaking peers in French. In addition, taking a language course is less challenging to these students as the content focus is only on language and not additional subject matter. Some parents have been told that they are not allowed to register their child in French Immersion if they do not have proof of Canadian Citizenship. RECOMMENDATIONS 1. Implement policies which require school districts to allow and encourage newly arrived Canadians and new Ontario residents to participate fully in all FSL programs. 2. Establish policies which require school districts to offer introductory French courses at the secondary level so that allophone students can quickly acquire the level of French proficiency required to study with their English-speaking peers. 3. Ensure that English as a Second Language funding to support ESL students in French Immersion is being allocated and used as required by student need. 4. Provide adequate school board funding to support these policies. 5. Promote FSL programs in multiple languages to various communities. 14

15 TRANSPORTATION 62,000 out of 121,659 (51%) of French Immersion students are transported daily. In some boards almost all FI students depend upon transportation to access French Immersion. Currently, school boards set their own transportation policies and there are no provincial guidelines with respect to who is eligible for transportation, walking distances, maximum ride times, or maximum length of time a child may be expected to ride a bus. Despite additional funding for transportation in recent years, service for all students has declined in many school boards in Ontario. Bus rides are longer. Pick up points are further away and earlier. JK students are expected to walk out to highways, stand in unsheltered areas and wait on dark, unlit highway shoulders for buses. In order to accommodate busing schedules, start times, lunch hours and dismissal times are all compromised and students often miss a portion of their instructional time. The situation for French Immersion and Extended French students is even more pronounced. Many students, some as young as 4 years old, ride the bus for 1 ½ to 2 hours before arriving at school. They arrive, hungry, tired and unable to concentrate. This is disruptive to the classroom environment and causes learning and behavioral issues. Boards with poor transportation or a complete lack of it contribute to low enrolment at the Elementary and at the Secondary level in FI programs and Core French. Since they operate only in selected centres, French Immersion programs are wholly dependent on the ability of students to get to the sites. The argument for providing transportation to such programs in most school boards is based on program viability and program equity. Without transportation, programs are threatened or become the preserve of the privileged. Norbert Hartmann, Chairperson of the Dufferin-Peel Catholic District School Board Co-management Team, January 30, 2007 report For the past few years funding has been based on the amount that they received in the previous year plus a % increase. An additional increase is allocated if there has been a rise in enrollment; however, in a time of declining enrollment this has not been significant. The Provincial policy is that the transportation allocations to the school boards will not be reduced even if enrollment drops. As a result, in school boards where FI/Extended French students have not traditionally been bussed, there is little financial incentive to introduce transportation for FI/EF students because these additional enrollments will not make up the shortfall in general enrolment and therefore no additional funding will be forthcoming. It is the position of CPF (Ontario) that: All Ontario students have equitable access to transportation to the FSL program of their choice. 15

16 RECOMMENDATIONS 1. Collect current data on all students, including French Immersion, from home to the school of attendance. 2. Collect current data on the bus routes including: walking distances, pick-up and drop off times on all students, including French Immersion, and determine the existing maximum, minimum and average bus ride times for all students. 3. Develop a province-wide transportation policy that gives clear guidelines as to walking distances, pick up locations, time limit and distance that any student may be expected to ride a bus. 4. Clearly state that this policy be inclusive of all FSL programs: FI/Extended and Core French. 5. Design a funding formula for transportation that reflects the total enrolment of the board and the needs of the students to access the programs. 6. Provide sufficient funding to transport all students safely and efficiently. 7. Require accountability and transparency of transportation allocations. 16

17 ATTRITION Only 3% of grade nine core French students continue with the program to Grade 12, most graduating with little ability to converse in, or understand French. Attrition from Immersion programs is of equal concern. On average only 27% of grade eight FI students will continue in the FI program and graduate in Grade 12 with their bilingual certificate (minimum 10 credits). A poor selection of course offerings in high school, an unwillingness to travel to a more distant secondary school, lack of transportation at all, and poor teaching quality are among the most commonly cited reasons. Many students simply have no choice at all as Immersion programs in many communities do not extend beyond grade eight, and some school boards do not even offer core French after grade 9. It should also be noted that no university or college in Ontario currently requires students to pass a proficiency test in French to be admitted; yet more and more employers have preferential hiring practices for students graduating from the French Immersion program. Attrition occurs in transition points between divisions and school sites. We know that improving the quality, access and course selection is critical in reducing the high rate of attrition. We know, moreover, that an embracing and supportive school-based culture complemented by strong extracurricular social, cultural and sporting programs for youth are among the most effective means for instilling a desire to learn French. RECOMMENDATIONS: 1. Establish a provincial French Advisory Committee of stakeholders to analyze, promote and share best practices among school boards. 2. Extend funding to community-level French second language extra-curricular activities. 3. Establish and promote a Provincial Bilingual Certificate recognizing the accumulated hours and credits and naming them: Extended (7 credits), Standard FI (10 credits), Honours FI (16 credits) among high school students, parents and employers. 4. Investigate the feasibility of implementing a grade 11 or 12 French language requirement in Ontario colleges and universities. 5. Continue to support the development of new post-secondary opportunities in French. 6. Support and promote multiple entry points for French Immersion. 17