In 2011, the Scottish government committed to a visionary educational measure that suggested both international ambition and economic nous. The “1+2” languages approach entitled all young people to enjoy 10 years of language learning - English plus two other languages - from first entering school to the age of 14.
The expectation across business and society was that Scotland would soon distinguish itself by turning out significant numbers of school leavers with a high level of foreign language competence, well qualified to support the economy and enhance their own futures.
Some 12 years after rollout of the policy began, and following a declared investment of £50 million, how successful has it been?
‘A worrying story’
The Scottish government collects data about implementation, most recently in 2023, when it reported that most schools enforce the policy. Yet there has, to date, been no official evaluation of its effects. Moreover, other publicly available information - including independent research - tells a worrying story.
Most notably, figures show that from 2015-24, Highers exam presentations were down by 50 per cent in French and 51 per cent in German, while a 26 per cent increase in Spanish signally failed to return the overall numbers for the three languages to their position of 10 years before.
The number of young Scots leaving school with a basic level of competence in a foreign language is plummeting. In addition, since school examinations are a necessary preparation for university study, the decline among qualified school leavers is narrowing the pipeline of future language teachers, which may in turn eventually undermine the 1+2 policy itself.
Government surveys don’t tell us why this powerful decline has occurred, and no doubt the reasons are complex. But three major issues raised by teachers and researchers demand attention and suggest that a full review is overdue.
First, teacher competence: a recent British Council survey shows that in 94 per cent of responding primary schools, the class teacher alone is delivering a foreign language - yet more than 40 per cent have no language qualification of any kind. Yes, you read that correctly: no qualification at all.
It’s therefore no surprise that many say they battle with confidence, never mind finding the means to complete essential professional development in acquiring the language themselves.
Second, lack of continuity: for example, government statistics state that only 68 per cent of implementing primaries provide classes in the same foreign language every year, while just 38 per cent of secondary schools offer students continuous teaching in the second foreign language.
From S1-S3, the majority provide a smattering of various languages, doing little to deepen students’ understanding or enhance their experience.
Crowded timetable
Third, lack of time: significant numbers of teachers at every level report struggling to secure sufficient slots in a timetable crowded by other subjects. In fact, many in secondary schools now teach more than one level - and even more than one language - in the same classroom. How on earth can staff and students be expected to make progress in such circumstances?
Put together this crisis of poor working and learning conditions, and the message being sent is that languages are not valued. No wonder students drop them.
Not only are we desperately far from meeting the admirable 1+2 vision for national prosperity and individual fulfilment, but the vision itself is also on borrowed time as the supply of language teachers dwindles. Surely that must be of enormous concern to ministers, as it is to Scotland’s businesses and educators?
Scotland needs an urgent review of foreign language provision. It needs a national strategy for languages encompassing the requirements of commerce, international relations, culture and education. It needs intelligently targeted investment in resources at every level.
And it needs all this now - before it’s too late.
Lorna Milne is president of the Franco-Scottish Society of Scotland, and a professor emerita of French
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