- More A-Levels in PE than in French, German & Classical Languages combined.
- Language teacher recruitment is at just 43% of the official target.
- Undergraduate enrolments in ‘Language & Area Studies’ down 20% in 5 years.
A new report from the Higher Education Policy Institute, The Languages Crisis: Arresting decline by Megan Bowler (HEPI Report 192), sponsored by Duolingo, shows a big drop in formal language learning.
The report starts with the current state of language learning in UK’s schools and universities:
- Only 2.97% of A-Levels taken in 2024 were for Modern Foreign Languages, Classical Subjects, Welsh (Second Language) and Irish.
- There are now more A-Level entries for Physical Education than for French, German and Classical Languages combined.
- The percentage of Year 11 pupils studying a language for GCSE is 20 percentage points lower in poorer areas than affluent ones (69% versus 46-47%).
- Language teacher recruitment consistently falls well below government targets – in 2024, just 43% of the target was reached.
- Declines in the uptake of degree programmes in languages have continued across all modern language groups each year since 2020 (when a previous HEPI report on the issue was published).
- Since 2014, 17 post-1992 universities have lost their modern languages degrees, bringing the total closures to 28 and leaving modern languages in just 10.
The paper includes a Foreword by the Rt Hon. Nick Gibb, the former Minister for Schools, and ends with 10 clear recommendations for reversing the decline:
- Action on teacher recruitment, such as reinstating the international relocation payment for trainee teachers (cut in April 2024).
- Better qualification pathways, such as making language-learning opportunities a statutory entitlement for pupils up to 18 (with a new Level 3 certificate in Applied Languages) and, in England, keeping a language GCSE as a requirement for the English Baccalaureate (EBacc), which is an important school accountability measure.
- Revitalising language hubs to create networks for languages beyond French, German and Spanish to help state schools benefit from the staff and resources of the independent school sector while creating links with higher education institutions.
- Enhancing multilingualism by providing centralised support and streamlining the pathway for qualification entries for languages spoken at home and taught in supplementary schools – one-in-five pupils are bilingual to some degree.
- Supporting British Sign Language (BSL), including adopting a clear plan for staffing and resources to ensure the success of the forthcoming GCSE in BSL.
- Making languages a priority in higher education, including strengthening language provision through more joint provision with other departments or with language specialists at other institutions.
- Improving the oversight of languages in higher education, rather than relying on the changing vagaries of student demand, with a view to preserving provision for small-but-strategically-important languages.
- Targeting government funding to support languages in higher education, with the goals of preventing the loss of strategic languages and tackling regional cold spots.
- Designing additional pathways for lifelong language learning via the Lifelong Learning Entitlement (LLE) and the expansion of alternative applied language qualifications for learners of all ages.
- Establishing a clear voice for languages in the corridors of power, using the model of Chief Scientific Advisers to co-ordinate progress on improving language learning and to provide updates on relevant research-informed evidence.
Megan Bowler, the author of the report and a DPhil student in Classics at the University of Oxford, said:
‘Language learning is facing new challenges. There is a common misconception that Google Translate and now AI tools are making language capabilities redundant. On the contrary, the skills and intellectual values that a “linguistic mindset” can instil are even more important in this age of rapid technological change. Close and critical analysis, oracy, cultural adaptability, creative problem-solving, precision and clarity of expression are exactly what ChatGPT struggles to replace.
‘In the UK, Languages disciplines are facing a vicious cycle. For the majority of schools, problems with teacher recruitment are leading to even lower rates of participation in language learning. Low uptake in higher education is leading to cuts in university language provision and degree programmes. The shortage of language skills is holding employers back and the teacher recruitment crisis continues worsening. Intervention and investment are needed to prevent a critical skills deficit.’
In his Introduction to the report, Michael Lynas, UK Country Director at Duolingo, writes:
‘This report, five years on from HEPI’s landmark Languages Crisis, comes at a critical moment. At a time when technology is reshaping how we learn, when support for formal language learning is under pressure, and when national cohesion and global connection matter more than ever, we need to rethink the role that languages play in our society.
‘Too often, the conversation about language learning in the UK is framed negatively: that we’re no good at it, that young people aren’t interested, that English is enough. The evidence says otherwise. Duolingo data show that the UK ranks second globally for the proportion of learners studying more than one language. And it’s under-22s who are leading the charge, choosing Japanese, Korean and Chinese in increasing numbers.
‘What we’re missing is not interest, but good pathways. We need a national approach that joins the dots between early enthusiasm and formal opportunity; between self-directed learning and academic recognition; between the languages we speak at home, and the languages we’re supported to learn at school.’
In his Foreword to the new report, the Rt Hon. Nick Gibb says:
‘I hope Megan Bowler’s excellent report will inspire schools and pupils to take the study of languages seriously and encourage more schools to insist the majority of their pupils study a language through to GCSE.
‘In an increasingly competitive world economy, we owe it to the next generation to ensure they are as prepared as their contemporaries overseas to compete in this environment. England is now fourth in the world in the reading ability of our 9 and 10-year-olds (PIRLS) and eleventh in the world in Maths (PISA). We need to make the same progress in our ability to speak and write in the languages of the world around us.’
Nick Hillman, Director of HEPI, said:
‘Back in 2020 in the depth of the pandemic, we published a report highlighting that there had been a terrible decline in formal language learning in the UK. Depressingly, the problems have become worse in every year since.
‘There is a once-in-a-lifetime opportunity to set a new course. I remain hopeful that the Curriculum and Assessment Review will propose sensible ideas for rejuvenating the learning of all languages, from ancient and modern languages to heritage languages and British Sign Language. Our new report includes lots of constructive ideas for people to engage with.
‘Some of the current problems stem from the poor decision in the 2000s to stop languages being compulsory for pupils after the age of 14. Ministers could reverse such decisions, but first they need to tackle the shortage of teachers.’
Notes for Editors
- Duolingo is the world’s #1 way to learn a language. Available in 100+ countries, we’re on a mission to bring free language education to the world.
- The Higher Education Policy Institute (HEPI) aims to shape the higher education policy debate with evidence. UK-wide, independent and non-partisan, it is funded by organisations and universities that wish to see a vibrant higher education debate.
- Megan Bowler is a DPhil student in Classics at the University of Oxford and a Lecturer in Ancient Greek Language and Literature at Oriel College and the Faculty of Classics.
- HEPI will be hosting a webinar with UCAS on Tuesday, 12 August looking ahead to this year’s results day and higher education admissions – more details here.
- HEPI will also be hosting the UK launch of the OECD’s Education at a Glance on 9 September – to book an in -person or virtual place, see here.
This report tells a dark truth, but a truth it is. However, I would argue that Nick Gibb’s recommendations are flawed in two very signficant ways. The first is that, as too often, the value and importance of languages is seen in too narrow a way, as if it were just a matter of economics. In our society today languages should be as much about cultural awareness and understanding, the sense of identity and belonging of our pupils, social cohesion and justice. The second is that the solutions to the problem lie not, or not only, in changes later in the educational system. By then it is too late. The teaching of languages at KS2 and the transition to KS3 are deeply problematic and flawed and almost no account is taken of the rich linguistic diversity of the pupils themselves. That’s why there is a need for a complete different approach to the start of this journey. Megan Bowler refers to WoLLoW, and she is right to do so!
The issue with MFL in the UK is extremely straightforward: the acquisition costs (£ and opportunity costs) are way too high given the ROI. One can make all the intellectual cases in the world, which this report does, but the reason young people don’t want to learn MFL is that it costs far too much for very weak labour market outcomes.
Some good stuff in here. Stop worrying about A Level. It’s irrelevant. It’s barely suitable for the tiny minority who do take it. What we need is mainstream language learning post 16. Don’t call it “alternative qualifications”. Call it mainstream language learning. And don’t shoot it in the foot by making it have to be Level 3. And sort out GCSE grading. That would be cost free, easy and effective.
As an MFL teacher for 10 years one disincentive, often not spoken about outside of teacher circles, is the harsh marking at both GCSE and A-level. Research has been done across the country in which it was discovered that at GCSE student outcomes are half a grade to a full grade lower than what the same student would attain in other subjects. Students often feel they are ‘no good’ at languages as a result of this. Papers seem designed to catch the student out rather than enabling them to show what they know. Almost every year I hear native French and Spanish speaking teachers working here in the UK express how in the Higher papers they would have struggled to answer some questions correctly themselves, particularly in the listening papers.
In many European countries and Canada students start learning an additional language from the age of 5/6. This is expected and is built into the timetable and curriculum.
The UK cannot play catch-up on MFL at 11.
It is also worth noting that students with a ‘home’ language e.g.Polish, Urdu in addition to English including a qualification in the former, are often given little credit for this in terms of admission to HE.
I suppose it is unhelpful to argue that Brexit signals that the UK wants to distance itself from continental Europe’s society, including its languages.