Presentation to the Minister of Higher Education and Training, Dr. Blade Nzimande The promotion of mother-tongue education and multilingualism in ...
←
→
Page content transcription
If your browser does not render page correctly, please read the page content below
1
Presentation to the Minister of Higher
Education and Training, Dr. Blade Nzimande
The promotion of mother-tongue education
and multilingualism in South Africa
February 20112
Contents
1. Introduction
2. The legal position with respect to mother-tongue
education
3. The impact of mother-tongue education in practice
4. The funding of mother-tongue education
5. Conclusion
6. Plan of action for mother-tongue education
7. Sources3
1. Introduction
This submission arises from a meeting between AfriForum Youth and the
Minister of Higher Education and Training, Dr Blade Nzimande, on 15 October
2010. The discussions concerned the promotion of mother-tongue education
and multilingualism at tertiary institutions in South Africa.
The tragic reality in South Africa is that English is implemented at virtually all
levels of society – at the expense of South Africa‟s indigenous languages.1 This
causes problems for students who do not speak English as their first language.
It also promotes the perception that citizens and students who are not English
speaking, are inferior and not entitled to equal treatment. 2
During the above discussions with the Minister the legal position for promoting
mother-tongue education, the lack of funding for multilingual universities, as
well as reasons why mother-tongue education and multilingualism should be
promoted were briefly referred to. Certain obstacles to be overcome in
promoting multilingualism were also mentioned. The most important of these
were that language cannot be used as a means of excluding anybody; the
practical challenge of promoting eleven languages on an equal level; the
fact that nine of the country‟s eleven official languages have not been
elevated to academic languages; the pressure on universities to be
demographically representative, and limited resources, which result in a
balance between the financing of mother-tongue education and other
essential expenses like study bursaries, student accommodation, etc. having
to be maintained.
The minister requested AfriForum Youth to set out these matters in more detail
and submit them to the Department of Higher Education so that the
department can consider them with a view to possible policy changes.
This submission is therefore the result of the above meeting and aims to
provide the minister with a brief and concise breakdown of the reasons why
steps must be taken to promote South Africa‟s indigenous languages. A brief
1
The concept “indigenous languages” refers to Sesotho, Setswana, siSwati, Tsivenda, Xitsonga, Afrikaans,
isiNdebele, isiXhosa and isiZulu It is important to take cognisance of the fact that Afrikaans is also an
indigenous language (or an “African language”) and should be dealt with as such.
2
Section 6(4) of the Constitution of the Republic of South Africa provides that all official languages must enjoy
parity of esteem and must be treated equitably. Section 9(3) of the Constitution provides that the state may
not discriminate against any citizen on the grounds of language, among other things. See section 2 below for
more on the legal position with respect to language.4 explanation of the legal position and the reasons why mother-tongue education should be promoted are provided, as are proposed practical steps that can be taken to ensure better support for the promotion of South Africa‟s indigenous languages. Special attention should be paid to the amendment of the funding formula for tertiary institutions as the most important step to be taken in promoting mother-tongue education and multilingualism.
5
2. The legal position with respect to mother-
tongue education
In this section of the submission we first focus on certain provisions in the
Constitution of the Republic of South Africa3. The Constitution will serve as
point of departure because it is the highest law of the Republic and any legal
prescription or action that is inconsistent with it, is invalid, and the obligations
that are prescribed by it must be fulfilled.4 As this document primarily
concerns the issue of multilingualism in tertiary education, certain provisions of
the Higher Education Act will also be referred to.5
In terms of section 6(1) of the Constitution of the Republic of South Africa,
South Africa has 11 official languages, namely Sesotho, Setswana, siSwati,
Tsivenda, Xitsonga, Afrikaans, English, isiNdebele, isiXhosa and isiZulu.
Subsection 2 obliges the Government (and by implication the Departments
of Basic Education and Higher Education), in view of the historical diminution
of the use and status of South Africa‟s indigenous languages, to introduce
practical and active measures to elevate the status of these languages and
promote their use. Section 7 of the Constitution provides that the Bill of Rights
is based on three fundamental rights, namely human dignity, equality and
freedom, and places an obligation on the State to honour, protect, promote
and realise these rights.
Section 9(3) of the Constitution provides that the State may not unfairly
discriminate directly or indirectly against anyone on one or more grounds,
including race, gender, ethnic or social origin, culture and language.
For the purposes of this submission we focus specifically on section 29,
subsections 1 and 2, of the Constitution, which provide as follows:
“(1) Everyone has the right—
(a) to a basic education, including adult basic education; and
(b) to further education, which the state, through reasonable measures, must
make progressively available and accessible.
(2) Everyone has the right to receive education in the official language or languages
of their choice in public educational institutions where that education is reasonably
practicable. In order to ensure the effective access to, and implementation of, this
3
Act 108 of 1996.
4
Section 2 of the Constitution.
5
Act 101 of 1997.6
right, the state must consider all reasonable educational alternatives, including single
medium institutions, taking into account—
(a) equity;
(b) practicability; and
(c) the need to redress the results of past racially discriminatory laws and
practices.”
Section 27(2) of the Higher Education Act provides that the language policy
of a tertiary institution must be determined by the Council, with the
concurrence of the Senate, subject to the policy as determined by the
Minister. Opinions differ on what is meant by the proviso that the language
policy must agree with the Minister‟s policy, but in the nature of things we can
assume that this policy must agree with all the above constitutional
provisions. A policy that amounts to the oppression of South Africa‟s official
indigenous languages would be unconstitutional, being contrary to the
obligations that are placed on the State in terms of sections 6(2) and 29(2) of
the Constitution. The Constitutional Court ruled in 2010 that section 29(2) of
the Constitution not only recognises the right to education in the official
language of your choice, but that the section obliges the State to ensure
effective access to this right.6 Moseneke DCJ said in his judgement that:
“S 29(1) entrenches the right to basic education and a right to further education
which, through reasonable measures, the State must make progressively accessible
and available to everyone.”7
With respect to subsection 2 Moseneke DCJ ruled that:
“The provision is made up of two distinct but mutually reinforcing parts. The first part
places an obvious premium on receiving education in a public school in a language
of choice. That right, however, is internally modified because the choice is available
only when it is „reasonably practicible‟. When it is „reasonably practicible‟ to receive
tuition in a language of one‟s choice will depend on all the relevant circumstances of
each particular case.”8
On the application of subsection 2 he declared:
“It is an injunction on the State to consider all reasonable educational alternatives
which are not limited to, but include, single-medium institutions. In resorting to an
option, such as a single or parallel or dual medium of instruction, the State must take
6
Mpumalanga Department of Education v Hoërskool Ermelo 2010 (2) SA 415 (CC), at 416 C – D
7
Supra, 431, at para [47]
8
Supra, 433, at para [52]7
into account what is fair, feasible and satisfies the need to remedy the results of past
racially discriminatory laws and practices.” 9
On the issue of obligations placed on the State by the Constitution, it is
important to mention section 237 of the Constitution:
“All constitutional obligations must be performed diligently and without delay.”
Within this framework the Higher Education Act continues by providing in
section 37 that the admission requirements of a tertiary institution should aim
to rectify the inequalities of the past so that there is no unfair discrimination
against anyone. In terms of section 39(2) of the Act the Minister has the
capacity to decide on the allocation of funds to tertiary institutions. The
Minister may set reasonable conditions and include suitable measures,
provided that the process is fair and transparent.
We submit that the allocation of funds to tertiary institutions plays a vital role
in the functioning of such an institution and that, as a result of the above
obligations placed on the State, a policy on tertiary funding should not be
implemented without accommodating the costs involved in developing
South Africa‟s indigenous languages in it.
9
Supra, 434, at para [53] The case concerned involved a dispute between the Department of Basic Education
in Mpumalanga and the governing body of the Ermelo High School in that province. Concerning the
Department of Basic Education the court mentioned that in view of section 29(2) of the Constitution the
Department of basic Education has an obligation to take legal steps to abide by this (at para [101]).8
3. The impact of mother-tongue education in
practice
Considerable research is available on the positive impact of mother-tongue
education on teaching and even on the welfare of a country. Despite the
tragic irony contained in this, increasing pressure is being brought to bear on
speakers of indigenous languages to receive instruction in the only one of
South Africa‟s official languages that is not an indigenous language.10 Africa
is the only continent where the majority of children start their schooling in a
foreign language. This leads to poor-quality education and the
marginalisation of the continent.11
It is also ironic that developed countries emphasise mother-tongue
education, while developing countries, despite their strong views against
colonialism, are still under the impression that it is necessary for the sake of
“international competitiveness” to study colonial languages. This, while there
is an obvious difference between the academic standards of tertiary
institutions that use mother-tongue instruction and those that use foreign
languages.
The perception that instruction in English is essential to be internationally
competitive is considerably smaller outside the developing countries. In fact,
if the website www.topuniversities.com is used as measure for evaluating the
world‟s top universities, it is clear that almost all these universities emphasise
mother-tongue instruction. Virtually the only universities focusing on instruction
in English are those in the USA, United Kingdom, Australia, et cetera, where
instruction takes place in English because it is the students‟ first language. As
far as could be established, all the other universities focus on mother-tongue
instruction, whether it amounts to instruction in Japanese, German, French,
Dutch or any other language.
Across the world there is an obvious link between the promotion of mother-
tongue education and the economic power of the country concerned, as
can be clearly seen from the maps below. The reason for this is that mother-
tongue education increases the success of teaching and that quality
teaching increases the economic potential of the workforce, which
10
Moseneke DCJ also mentioned this irony in the Constitutional Court ruling in Mpumalanga Department of
Education v Hoërskool Ermelo 2010 (2) SA 415.
11
Report by UNESCO (2010) Why and how Africa should invest in African languages an multilingual education,
pp. 4 – 5.9
eventually increases the overall income of a country. It is also easier for
developed countries to implement mother-tongue education because they
have more resources.
However, this does not change the fact that the additional cost of promoting
mother-tongue education will quite probably yield a good return in the long
term: workers will be able to add more value because mother-tongue
education has made their training more effective than it would otherwise
have been. The maps below show the link between mother-tongue
education and the income of the respective countries.
Countries where mother-tongue education is offered up to secondary school level12
Classification of income according to the World Bank (2008 figures)
12
Maps compiled by Solidarity (2008).10 The United Nations Educational, Scientific and Cultural Organisation (UNESCO) estimates that roughly 5 to 15% of Africa‟s children know the foreign language in which they are taught when they go to school. UNESCO has also found that it is untrue that education in African languages causes a delay in the mastery of science, technology and other universal knowledge.13 International research has further shown that students can acquire simple conversational skills in a new language within one to two years, but that it takes at least six years in a well-equipped environment to acquire abstract academic language skills characterised by the language of instruction.14 It was found in Mali that approximately 10% of primary school children received instruction in their mother tongue, and that the chance of these children having to repeat their year was five times less than that of their peers who did not receive mother-tongue education.15 In Germany it was found that the group of pupils with the worst performance was found among immigrants who speak other home languages than those in which they were taught.16 In South Africa, black South African schoolchildren received instruction in their mother tongue for eight years in the period between 1955 and 1976. During this period the overall pass rate was 83,7% in 1976. The programme was then changed, and the period of mother-tongue education was shortened to four years. The pass rate dropped dramatically to 44% in 1992.17 The South African Systematic Evaluation National Report of 2005 indicated that students who studied in their mother tongue achieved a national average of 69%. Students who did not study in their mother tongue, achieved an average of only 32%.18 13 Report by UNESCO (2010) Why and how Africa should invest in African languages an multilingual education, p. 9. 14 Report by UNESCO (2010) Why and how Africa should invest in African languages an multilingual education, p. 28. 15 Report by UNESCO (2010) Why and how Africa should invest in African languages an multilingual education, p. 30. 16 Report by UNESCO (2010) Why and how Africa should invest in African languages an multilingual education, p. 30. 17 Report by UNESCO (2010) Why and how Africa should invest in African languages an multilingual education, p. 33. 18 Report by UNESCO (2010) Why and how Africa should invest in African languages an multilingual education, p. 33.
11 Case studies Burkina Faso In Burkina Faso an initiative was launched to develop mother tongue education in formal basic education. As it was a former French colony, the language of education in Burkina Faso was the country‟s official language, namely French. However, the country has about sixty ethnic groups and languages. Seventeen per cent of the country‟s population speak French, and the remaining local languages all have the status of „national languages‟. Formal education in Burkina Faso is conducted in French from day one at school level until the last day of university. However, a critical evaluation of the formal education system in Burkina Faso showed that only 22 out of 100 pupils who started primary school completed it within six years (the normal duration of primary school), and only 17 of them passed the primary school leaving certificate. The system was therefore characterised by high dropout and repetition rates.19 In 1994 an experimental school with mother tongue education and French as a second language was set up for 55 learners. This resulted in the learning period being shortened (by two years). The pass rate in the same exam as that written by the pupils in a standard primary school was 52,83%, compared to the national success rate of 40% to 42%.20 Peru In 1952, mother tongue-based education was introduced in Peru in order to meet the educational needs of the indigenous populations of the Peruvian rainforest. In 1972 changes were introduced to establish a multi-cultural society with the inclusion of the Quechua language, which was only officially recognised as a language in 1975. In 1994 the constitution recognised the linguistic and educational rights of indigenous people by recognising ethnic and cultural plurality. This resulted in the use of the indigenous language alongside the Spanish language. 19 These numbers are very similar to those in basic education in South Africa. In 1999 a total of 1 318 932 Grade 1 learners were registered, most of whom did not study in their mother tongue. When this particular group eventually wrote their national senior certificate exams in 2010, a total of 559 166 enrolled for the exam, and only 27,6% of the initial group of 1,3 m Grade 1s passed the exam. 20 Report by UNESCO (2008) Improving the Quality of Mother Tongue-based Literacy and Learning: Case Studies from Asia, Africa and South America, p. 119.
12
Students first learn to read and write in their mother tongue, the sole
language of instruction in the early years of schooling. Spanish is initially
taught as a second language. Evaluation of bilingual education has shown a
positive cognitive impact on indigenous students. These benefits include:
Improved overall academic performance
Greater ability in mathematical problems
Greater assurance in speaking Spanish
Greater self-esteem
More active student participation
One of the major strengths of the Peruvian bilingual education system is the
development of greater recognition of and respect for different linguistic and
cultural groups and their rights.21
Mali
In 1979 the language of formal education in Mali was changed from French
to the national languages in an attempt to solve the high dropout rate,
numerous failures and grade repetition. Bilingual education began on an
experimental basis and national languages were introduced as the medium
of instruction for Grades 1 to 6.
The child‟s mother tongue is used as the language of instruction and
throughout primary school the second language is taught in order to allow
the child to become completely bilingual. Children are taught to read and
write in their first language before starting to learn French. By the fifth and six
grade, half the learner‟s classes are taught in French. The first group (tested in
the town of Segou) finished the seventh grade entry exam with a pass rate of
77%, compared to the national average of 66%. The study showed that
student achievement was significantly higher than in French-only schools.22
Bangladesh
In Bangladesh the ethnic community belongs to diverse cultures and
languages. There are three unique linguistic families in broad classifications in
Bangladesh. These are Tibeto-Burmese, Austro-Asiatic/Mon-Khmer,
21
Report by UNESCO (2008) Mother Tongue Matters: Local Language as a Key to Effective Learning, pp. 23 –
27.
22
Report by UNESCO (2008) Mother Tongue Matters: Local Language as a Key to Effective Learning, pp. 9–16.13
Dravidians. These three major categories include a number of individual
languages and dialects.
In 1952 the first East Bengal Education System Reconstruction Committee
submitted a report stating that mother tongue education would be standard
at primary school. The Ashrai‟s Action Research Project aimed at improving
the level of learners‟ achievement through education in their mother tongue
at the primary school level. The hypothesis was that with appropriate learning
materials and mother tongue instruction, the learners‟ achievement would
increase over time. The average marks of learners participating in the Ashrai‟s
Action Research Project were compared to those of learners from a
government school who did not participate in the project. The three fields of
comparison were: Mathematics, Social Sciences and Language. (See graph
below.)
The impact of mother tongue education on Language, Social Science and Maths in Bangladesh23
40
35
30
25
20 Series 1
Series 2
15
10
5
0
Language Social Science Maths
Series 1 is the average performance of the children who received mother tongue education,
compared to series 2, which is the average performance of children in the public education
system.
In South Africa we are fortunate to have a platform on which to build and
expand our mother tongue education. Research has shown us that mother
tongue education is beneficial for academic performance, and we as a
nation are compelled to ensure that this is implemented in our educational
23
Report by UNESCO (2007) Mother Tongue-based Literacy Programmes, Case Studies of Good Practice in
Africa, p. 46. Graph based on Asrai Action Research Projects findings.14 system. In a country that contributes only 0,36 % of the annual research expenditure and output of the world, we must strive to encourage quality education at tertiary level. This can be effectively done only if we invest in mother tongue education. South Africa has knowledge and expertise to offer the world, and we must find ways to encourage our youth to share that knowledge.
15
4. The funding of mother-tongue education
If the drastic effect of the promotion of mother-tongue education on schools
and universities worldwide is taken into account, as well as the symbolic
message of mutual recognition and respect that is communicated by
positive policy changes in this regard, the costs involved in promoting
mother-tongue education are surprisingly low. However, the relationship
between the inputs and the outcome must be clearly understood. The inputs
are measured in terms of money, while the outcome is expressed in a higher
quality of education and the promotion of mutual recognition and respect.
In financial terms the costs of multilingual tertiary institutions are naturally
higher than those of monolingual institutions. However, in view of the diversity
of South African society and the constitutional right to equality and mother-
tongue education, the South African government is obliged to make active
policy decisions in favour of multilingualism. There are also strong social and
political reasons why additional funding is required for multilingual tertiary
institutions.
The existing funding formula for tertiary institutions does not accommodate
multilingualism in any respect. This means that the calculation for a
monolingual tertiary institution like the University of the Witwatersrand is
exactly the same as the calculation for institutions like the University of
Pretoria and the North-West University, where the promotion of three of the
official languages is envisaged. The first step towards solving this problem
should therefore be to include multilingualism as a criterion for additional
funding in the funding formula.
The costs of multilingualism internationally and in South Africa
Various approaches are followed globally to formulate this principle in
financial terms. At the University of Ottawa a government grant of 8% is
included in the institutional budget. The University of Maastricht received an
initial additional investment of approximately 10 to 15% of the institution‟s
budget with which only one language could have been accommodated.
Research by the North-West University showed that the costs involved in
promoting multilingualism in South Africa could be even less than this. While
Emzantsi Associates found in 2003 that it would cost only between 1 to 2% of
the national medium-term expenditure framework to allow all government16
departments in South Africa to function on a multilingual level, the North-West
University uses even less than 1% of its institutional budget to implement its
multilingualism policy. In fact, it estimated in 2009 that an additional amount
of only R148,48 for each registered student at the NWU is required to cover
the cost of multilingualism. It was also found that the addition of another
working language entailed only a 30% increase in the volume and extent of
inputs, and that not all inputs had to be duplicated.
Criticism of the current formula
The current funding formula evaluates the various criteria that determine the
funds to be allocated to the various universities. The criteria that are currently
taken into account include the following:
teaching input, based on the number of students registered;
teaching output, based on the types of graduates produced; and
research output, based on among other things the number of
doctorates and research articles produced annually.
In addition to these categories, other criteria like the size of the institution, the
number of campuses and transformation (measured on the basis of
demographics based on race) are also accommodated in the funding
formula.
If it is taken into account that multilingualism is not taken into account by this
formula, one could argue that tertiary institutions that meet their
constitutional obligation to promote South Africa‟s official languages are
“punished” in that they do not receive any additional funding for this. This
means that costs must be cut elsewhere and that the indigenous languages
cannot be implemented effectively.
Some of the criteria that are currently included in the funding formula were
introduced to reward or promote quality education and to increase the
accessibility of tertiary institutions, particularly for disadvantaged prospective
students. It is therefore important to mention that the promotion of
multilingualism will also contribute towards promoting the accessibility of
tertiary institutions for students from all language groups, and that it will mean
an enormous boost for quality education. A gross misperception exists that
the promotion of mother-tongue education will lead to the exclusion of
students, while the opposite is actually true.17 A further source of concern with respect to multilingualism is the question of whether it can have a negative impact on transformation. To reply to this, we should mention that a forced transformation process, which involves students begin prevented from studying in the language of their choice, is not only unconstitutional, but also leads to more problems than solutions. The first of these is that quality education is hampered, and the second that it again leads to a system in which some lucky students benefit by receiving mother-tongue education, while their classmates do not have this advantage. This situation leads to tension in the classroom, which eventually has a negative impact on the student community, quality education and mutual recognition and respect. It is therefore vital for the existing funding formula to be amended to accommodate the promotion of multilingualism. Proposed formula When we talk about funds, we should firstly note that the funding of mother- tongue education is actually very inexpensive, particularly if we take into account the extent of the outcome that can be achieved with relatively small financial inputs. In accordance with the most recent initiatives launched by the Ministry of Higher Education and Training with regard to the use of African languages as languages of higher education we propose that a formula be developed to use as basis for managing the principle and practice of multilingualism. In this regard we propose that the well-known 2005 Ndebele Report be taken as point of departure, but adapted to make provision for an anchor-and- support principle. Taking language diversity and the recommendations of the Ndebele Report into account, certain universities or university campuses would make themselves available as anchor developers and implementers of certain languages as working languages and languages of instruction on these campuses. These languages would be identified on the basis of language- demographic patterns, expertise at these universities and other variables. For example, the University of KwaZulu-Natal (UKZN) can be the anchor campus for isiZulu, while UNIZUL acts as support campus. They then jointly, and on the basis of a formal association agreement, contribute to the structured
18 development and implementation of isiZulu as a language of higher education. As anchor campus for isiZulu UKZN would then act as centre for development and excellence for isiZulu and ensure that the language is developed and used as a language of higher education – as a language of instruction and an administrative language – while UNIZUL supports the project and contributes to the development and also uses isiZulu as a language of instruction and a working language. National funding The implementation of the proposed formula depends on national funding. On the analogy of the established practice of earmarked funding (for example like that for multicampus institutions), the Ministry is requested to make a multilingualism-earmarked grant amounting to 2% of the medium- term expenditure framework (MTEF) available for the implementation of this formula.
19
5. Conclusion
Much can be said about mother-tongue education and its pros and cons.
What is important, however, is that the issue of mother-tongue education
must always be viewed within the context of quality education, its social
implications and applicable legal provisions. Most people agree that mother-
tongue education has a positive outcome for quality education, as can be
clearly seen from this document.
During the meeting between AfriForum Youth and the Minister of Higher
Education, Dr Blade Nzimande, on 15 October 2010 the Minister rightly
pointed out certain obstacles to the implementation of mother-tongue
education. These obstacles mainly relate to the practical and financial
implications of such a system.
In terms of section 6(2) of the Constitution, the State is obliged to take
practical and active steps to elevate the status of South Africa‟s official
languages and promote their use. Section 29(2) furthermore provides that
everyone has the right to receive education in the official language or
languages of their choice in public educational institutions where that
education is reasonably practicable. The Higher Education Act provides that
the language policy of a tertiary institution must be determined by the
Council, with the concurrence of the Senate, and that such language policy
must agree with the policy as determined by the Minister. Although opinions
differ about what the extent of this ministerial policy may be, it may naturally
not be in conflict with the above obligations of the State as provided by the
Constitution.
In this document we argue that the allocation of funds to tertiary institutions
plays a vital role in the functioning of such an institution and that, as a result
of the above obligations placed on the State, a policy on tertiary funding
should not be implemented without accommodating the costs involved in
developing South Africa‟s indigenous languages in it. This argument is
reinforced if cognisance is taken of the positive implications of the
implementation of mother-tongue education for the quality of education.
The impact of mother-tongue education is discussed in detail in section 3 of
this document. The two main conclusions that can be drawn are:20
1. That the implementation of mother-tongue education has led to
drastic improvements in the achievements across the world of the
students concerned; and
2. That there is no truth in the perception that it is in a student‟s interest to
study in English in order to be “internationally competitive”. For various
reasons the promotion of mother-tongue education has a greater
influence on the student‟s international competitiveness. The main
reasons are the improved understanding of the subject field
concerned, and the reinforcement of the student‟s self-confidence,
which is a natural consequence of better achievements.
The most important step to be taken now with regard to higher education is
for the funding formula prescribed for tertiary institutions by the Department
of Higher Education to be amended to accommodate the promotion of
mother-tongue education and multilingualism. The fact should be
acknowledged that, although the input in this regard is measured in terms of
money, the outcome is expressed in the improvement of quality education
and the promotion of mutual recognition and respect among the different
language groups in South Africa.
Different financial approaches to multilingualism are followed across the
world. At the University of Ottawa a government grant of 8% is included in the
institutional budget. The University of Maastricht received an initial additional
investment of approximately 10 to 15% of the institution‟s budget with which
only one language could have been accommodated. In South Africa this
need not be so high. If an additional amount of approximately R150,00 is
provided for every registered student, a drastic improvement can be made
with regard to mother-tongue education.
The proposal of an anchor-and-support principle with respect to higher
education seems to be the most practical. In accordance with this proposal,
certain universities or university campuses would make themselves available
as anchor developers and implementers of certain languages as working
languages and languages of instruction on these campuses. These
languages would be identified on the basis of language-demographic
patterns and other variables. In this attempt, the anchor universities work
together with support universities, which contribute to the structured
development and implementation of the selected languages in terms of a
formal association agreement. This concept is explained in more detail in
section 4 of this document.21 To give effect to this, it is firstly important for the multilingualism of a tertiary institution to be included in the funding formula as a criterion for additional funding. For these purposes it would be adequate if an additional amount of 2% of the medium-term expenditure framework is allocated to multilingual universities and earmarked for the promotion of multilingualism. It is furthermore important to note that the issuing of reports and submissions is not enough to make a difference in this regard – action steps should implemented. Although the amendment of the funding formula by the Minister of Higher Education plays a vital role in this regard, this amendment alone will not make a sustainable difference if all role players do not become involved. For this reason AfriForum Youth has set out action plans that can be implemented by the various role players. Strong leadership and willpower can ensure a future for South Africa‟s indigenous languages.
22
6. Plan of action for mother-tongue education
This document emphasises the positive impact that the promotion of mother-
tongue education will have on students and South Africa. It is important,
however, that the issue of mother-tongue education should not stop with
documents and reports, and that we should continue with action plans to
give effect to these. The blame for the lack of multilingualism cannot be
placed on a single institution, and it will therefore be addressed effectively
only if an extensive action plan in this regard is launched. The main role
players in this issue are:
The government (including the two departments of education)
Universities (including executives and university councils)
Students (including student representative councils)
Parents (including governing bodies in schools).
A breakdown of steps that can be taken by each of the role players to
ensure a future for South Africa‟s indigenous languages is given below. The
two ministers of education are requested to take one step each, while
university managements, parents and students each have five steps to
implement. AfriForum Youth hereby commits itself to a ten-point plan, which
will be implemented from the release of this report.
The Ministers of Basic and Higher Education
Although this report mainly deals with the situation in higher education, it
cannot be viewed in isolation from basic education. Both the Ministers of
Higher and Basic Education in the recent past made positive statements on
the promotion of South Africa‟s indigenous languages. However, these
statements should now be implemented in policies. The Minister of Basic
Education is therefore requested to:
hold a summit on the practical challenges of mother-tongue
education in basic education in South Africa.
The Minister of Higher Education is requested to:
amend the funding formula for higher education, as explained in part 4
of this document.23
A five-point plan for university authorities
1. Deal timeously with students‟ language complaints and take steps
against staff members who violate students‟ language rights.
2. Ensure that university functions take place in all the official languages
of the university concerned, and not only in one language.
3. Develop a good code of practice for transformation so that universities
do not transform at the expense of mother-tongue education and
multilingualism.
4. Appoint staff who are competent to teach in more than one language
and present courses to train staff in this competency.
5. Appoint a language ombudsman at each institution and create an
accessible language office from which students‟ language skills can be
developed and their complaints can be dealt with.
A five-point plan for parents of pupils and students
1. Realise that the lack of mother-tongue education and multilingualism
in South Africa is a problem that cannot be solved by the authorities
only.
2. Enrol your children in schools and universities where they will be taught
in their mother tongue.
3. Teach your children why it is in their own interest to study in their own
language.
4. Put pressure on schools and universities that disregard your children‟s
language rights.
5. Encourage your children to develop an interest and pride in their
language and to promote this in society.
A five-point plan for students
1. Register for your modules in your mother tongue and object if this is not
available.
2. Know your language rights and grievance procedures to follow when
your rights are violated.
3. Live your life as student in your own language and make an effort to
learn other languages.
4. Conduct research and write your dissertations, assignments and tests in
your own language. You have the right to do so.
5. Report lecturers or other staff who violate your language rights.24
AfriForum Youth’s national campaign for mother-tongue education
AfriForum Youth has decided to set an example by launching an extensive
ten-point plan, while other role players are expected to implement only five
steps. The ten-point plan is the following:
1. Hand this report to the Ministers of Higher and Basic Education in
person.
2. Hand this report to the principals of all the tertiary institutions in South
Africa.
3. Hand this report to the student representative councils of all the
universities in South Africa and hold discussions with them on its
contents.
4. Launch a campaign to inform parents of the importance of mother-
tongue education.
5. Launch a campaign to inform students of the importance of mother-
tongue education.
6. Launch a campaign to inform schools, and particularly the governing
bodies of the various schools, of the importance of mother-tongue
education.
7. Launch public awareness actions on the importance of mother-tongue
education. This will include an entertaining mini-documentary video for
distribution on social networks.
8. Open an electronic complaints channel where students from across
South Africa can lodge complaints when their language rights are
violated.
9. Raise the issue of mother-tongue education and multilingualism in the
public debate and when liaising with local and international
organisations
10. Expand local structures and promote representation on student
representative councils to implement the campaign here as well.25
7. List of sources
Legislation
The Constitution of the Republic of South Africa, Act 108 of 1996
Higher Education Act, Act 101 of 1997
Case law
Mpumalanga Department of Education v Hoërskool Ermelo 2010 (2) SA
415 (CC)
Reports
UNESCO (2010) Why and how Africa should invest in African languages
and multilingual education
UNESCO (2008) Improving the Quality of Mother Tongue-based
Literacy and Learning: Case Studies from Asia, Africa and South
America
UNESCO (2008) Mother Tongue Matters: Local Language as a Key to
Effective Learning
UNESCO (2007) Mother Tongue-based Literacy Programmes, Case
Studies of Good Practice in Africa
The development of indigenous African languages as mediums of
instruction in higher education, 2005 (Ndebele Report)
Webpages
www.topuniversities.comYou can also read
