in early language learning (European Commission, 2011a).
A significant break-through has come about across European membership states with the recognition that preschool is to be regarded as the first level of early childhood education, which children should attend:
Pre-school education in general has been the object of increased attention in recent years: with the aim of unlocking children’s potential, in 2009 the EU Education Ministers set a target that by 2020 at least 95 % of children aged between four and the age in which compulsory primary education starts should participate in early childhood education. (European Commission, 2011a, p. 5)
Within the move towards early childhood education, early language learning has taken a prominent position. Endorsing early language learning, the European Commission compiled the policy handbook (2011a) on language learning at the pre-primary level, in which it clearly states what early language learning entails:
‘Early Language Learning (ELL) at pre-primary level’ means systematic awareness raising or exposure to more than one language taking place in an early childhood education and care setting in a pre-primary school context. (p. 6; italics in the original)
Early language learning policies include both second language learning, which is the language of instruction (in the context of the study presented here: German), and foreign language learning (in the context of the study presented here: English) (p. 5). To avoid any confusion on what the European Commission is referring to, there are clear definitions:
‘Second language’ means the language of instruction for children with a minority background, if it is different from their first language / mother tongue. It means the language of instruction in the case of children with a migrant background. In multilingual countries, it means the language of instruction when it is different from the children’s first language / mother tongue. (p. 7; italics in original)
Language of instruction means the dominant language formally used in the pre-primary school setting. (p. 6; italics in original)
First language / mother tongue means any language first acquired by a child. (p. 6; italics in original)
Foreign language means any language used in the pre-primary school context other than the first language / mother tongue, the language of instruction or the second language. (p. 7; italics in original)
This policy handbook addresses member states, giving a set of guidelines and recommendations of “reflecting examples of good practice and academic evidence on how to ensure the quality, effectiveness and sustainability of language learning in pre-primary settings” (p. 4). As there is a continual debate about early language learning, the policy handbook clearly establishes the benefits:
ELL activities in pre-primary settings … are instrumental in enhancing competences such as comprehension, expression, communication and problem-solving, enabling children to interact successfully with peers and adults. As young children also become aware of their own identity and cultural values, early language learning can shape the way they develop their attitudes towards other languages and cultures by raising awareness of diversity and of cultural variety, hence fostering understanding and respect. …
Starting to learn a second / foreign language early can help shape children’s overall progress while they are in a highly dynamic developmental stage in their lives. Starting early also means that learning can take place over a longer period, which may support the achievement of more permanent results in language learning and in other areas of learning. When the young brain learns languages, it tends to develop an enhanced capacity to learn languages throughout life. …
Children who have access to more than one language tend to transfer into the first language / mother tongue the concepts and terms they have learnt through the second / foreign language and vice versa. Hence, language processing in a multilingual mind helps stimulate cognitive competences. …. (pp. 7, 8)
Nevertheless, as competence in the language of instruction is regarded as the key to providing children with equal learning opportunities, early language learning is predominantly associated with the language of instruction in pre-primary settings:
Pre-primary language education aims to offer all children equal opportunities for a good start to the emotional, social and cognitive development resulting from language exposure, taking into account their needs and interests and preparing them for primary school. … Pre-primary education tends to focus on the language of instruction. (p. 10).
As a result of diverse situations and needs, as well as opportunities available to offer, early language learning initiatives to include foreign language learning vary greatly throughout the member states:
With some exceptions, language activities at pre-primary level are not formally structured. There are marked differences in staff competences. Moreover, resources and opportunities are unevenly distributed, both geographically and within different socio-demographic groups. Where an early start in language learning is seen as a key to better opportunities in life but access remains limited, early language learning has become entangled with equity issues: better education often means earlier access to good quality language tuition for the advantaged. In some cases, language learning opportunities are not offered at all in public kindergartens although this does happen in privately-run settings. In others, demand exceeds the available places. Even where opportunities are there, for some children access is more difficult – for example where parents are asked to contribute additional fees for language lessons. Furthermore, early language learning is only provided in a limited number of languages. Diversifying the offer of languages is a challenge linked to local demand, to utilitarian considerations and to the availability of adequate human and financial resources. (p. 9)
While European education policy clearly supports early foreign language education at the preschool level, foreign language education for the preschool is not a priority in Austrian education policy as the following chapter will demonstrate.
2.2.2 Austrian education policy for the preschool level
In Austria the European Commission’s proposal to teach a foreign language at the preschool level became eclipsed by the responsibility and immediate need to focus on the language of instruction - German. The BildungsRahmenPlan, the preschool educational plan for Austria published by the Bundesministerium für Unterricht, Kunst und Kultur (2009a), was published with an extra component dedicated to early language learning which refers entirely and exclusively to German (Bundesministerium für Unterricht, Kunst und Kultur, 2009b). According to the European country report of Austria, the situation is as follows:
Austrian kindergartens further and promote children’s acquisition of the German language above all: this applies both to children with German as a first language, and to children who have a different first language. (Council of Europe, 2008a, p. 36)
Programmes designed to give children of kindergarten age a good start in primary school by ensuring that they have a sufficient level of competence in the language of schooling are high on the agenda of ministries of education and local education authorities. (Council of Europe, 2008b, p. 11)
The final version does not cater for foreign language learning in its early language learning programme. “Systematic foreign language teaching (FLT) at pre-primary level does not lie within the priorities of the Austrian education system” (European Commission, 2011b, p. 7) to the extent that foreign languages are not discussed at all within the compilation of the BildungsRahmenPlan. Foreign language learning was however included in the discussion in the draft of BildungsRahmenPlan. “Beim Fremdsprachenlernen im Kindergarten ist es häufig das vorrangige Ziel, eine Sprache kennenzulernen, die für alle Kinder neu ist. Durch Lieder, Reime, einfache Texte können Klangbild und Aussprache gefestigt werden” (Bundesministerium für Unterricht, Kunst und Kultur, 2008, p. 25). The BildungsRahmenPlan is significant for the implications of foreign language learning initiatives in Austrian state preschools, because it is the legal foundation for the education plan for all Austrian preschools.
The