Try this
Peter A. Thomas
THOMASPA at interramp.com
Tue Oct 17 02:26:58 UTC 1995
The conclusions and recommendations of the National Foreign Language Center's
study of the teaching of Russian in the US should be of interest to subscribers
to SEELANGS. See below, past the forwarding messages.
Linda Scatton, State University of New York
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>>From Peter A. Thomas
Director, IDAS
State University of New York
SUNY Plaza
Albany, NY 12246
THOMASPA at INTERRAMP.COM
518 443-5125 465-4992 (Fax)
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[Academe Today: Document Archive]
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Posted October 12, 1995: the conclusions and recommendations of the
National Foreign Language Center's study of the teaching of Russian in the
United States:
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RUSSIAN IN THE UNITED STATES: A Case Study of America's Language
Needs and Capacities
CHAPTER SEVEN
CONCLUSIONS AND RECOMMENDATIONS
The conclusions reached in this study point to the need for
intervention strategies which strengthen national capacity in
Russian as the most effective strategy, from the point of view
of results and cost, for addressing national needs in the
language. Accordingly, the recommendations of this report are
directed at the Russian language field as a whole, specifically
at strengthening the base structures of the field and the
academic "flagship" programs. We leave aside discussion of the
infrastructure elements-not because recommendations cannot be
made, but for the sake of focusing on the most pivotal aspects
of a very complex problem.
Before stating the conclusions and recommendations following
from the analysis in Parts 1 and 2, we provide the following
underlying premises upon which they rest:
First, recommendations must address strategic concerns, not
necessarily the issues of the day. Any advantage provided by a
report such as this must be fully exploited for the long term
because the impetus and energy for reform cannot be of frequent
occurrence.
Second, the situation of Russian as a less commonly taught
language (LCTL), with regard to both demand and supply
(including student enrollments), most probably will not change
in the foreseeable future. Even with demand rising, as it
apparently is doing, the current level of that demand is low
and will probably remain so in comparison with, say, Spanish.
Accordingly, strategies are needed to maximize fieldwide
resources in support of dispersed expertise and marginalized
programs, particularly within the academic sector.
Third, there are few additional resources available to foreign
language in general, and Russian in particular, from either
public or private sources. Public perceptions will not
tolerate any major financial commitment to the field unless
something drastic happens in that area of the world.
Therefore, the primary strategy must focus on the reallocation
of resources rather than on the securing of major new funding.
Fourth, against this background of limited resources, those
issues must be addressed that offer the greatest return for the
investment. This means that resources should be directed at
targets affecting fieldwide, cross-sector capacity. Collective
action is needed to address problems common to institutions and
sectors.
Fifth, measures recommended must be realistic; that is, they
have to have some chance of being adopted by the field. While
leadership is needed, reform both at the field and at the
institutional level must be perceived as addressing vital
issues in a manner that does not threaten the professionals and
the good they are presently doing.
Finally, the future of education in general and language
training in particular will include much more attention to
individualized learning environments. Such environments are
defined by their accessibility when and where the need for
learning arises and by their direct relevance to the need
provoking the learning. This type of "just in time, just in
place, and just in need" learning presumes a heavy reliance on
distance education and, in particular, on electronic
networking. The professionalization of this
distance-language-learning industry will depend on individual
fields setting the standards and, where feasible, providing the
centralized facilities that would enable the delivery of
quality programs, courses, modules, and learning materials.
With regard to the conclusions and recommendations of this
report it must also be stated clearly that much more needs to
be said about our national needs and capacity in Russian than
the current study attempts. In part these omissions are a
result of time pressures and resource constraints. However,
the recognition of omissions is also a result of the
comprehensive analysis attempted here, for the process of the
study revealed what more such a study could and should do. For
example, the model of analysis with which we are operating
requires much more elaboration concerning national needs and
demand than was possible to include here. What are our
national needs with regard to communicating with Russians and
Russian speakers? How can we determine them in the near and
the long term? What are the exact tasks demanded and the
domains, skills, levels, and modes required? We also need to
understand better the supply system, in particular just what is
being produced and how it matches the tasks demanded. And how
can this characterization of supply impact on capacity in
general and on educational programs in particular? These and
similar questions provoke the first recommendation we make
below.
CONCLUSIONS
Before turning to recommendations, it is appropriate to
summarize the principal conclusions of this study.
All indications point to a long-term national need for
linguistically competent users of Russian in the United States.
The meager actual demand and current low student enrollments
belie the importance of effective interactions between Russia
and the United States in the foreseeable future (Chapter 1).
While the market forces of supply and demand seem to be
sufficient at the present time, there are clear indications
that the supply system is not operating efficiently and that
its ability to respond to projected increases in demand is
uncertain. The argument for inefficiency derives from the fact
that the federal and private sectors feel the need to invest
significant resources in language training facilities on top of
those already supporting existing language programs in schools,
colleges, and universities. Questions concerning the ability
to respond to shifts in demand derive from deficiencies in the
field architecture that underlies national capacity as well as
from the failure on the part of the supply sectors to interact
in a manner to make cumulative their experience, resources, and
expertise (Chapters 2 and 3).
The supply system, in particular the academic sector, is not
producing a sufficient number of program graduates at a high
enough level of competence in Russian. Enrollments are
declining at a time when they should be increasing, and the
levels of student competence produced do not instill sufficient
confidence in enterprises anxious to hire Russian-proficient
students directly out of school (Chapter 2).
Our national capacity in Russian, as defined by fieldwide
architecture, including flagship programs, can be significantly
improved. Each aspect of the field architecture can be
enhanced, while some entirely new elements should be added
(Chapter 3).
Undergraduate programs could benefit significantly by
restructuring and by reallocating resources. Refocusing on the
applied mission and reallocating resources to the higher levels
of instruction are legitimate issues for consideration (Chapter
4).
High school programs are in need of support, particularly with
regard to teacher training and the support of flagship
programs. The marginalized status of Russian teachers and
programs must be mitigated, while the fate of flagship programs
cannot be left entirely in the hands of "adolescent market
forces" (Chapter 5).
RECOMMENDATIONS
The recommendations that flow from these conclusions are broken
down here into the following categories: (1) those addressing
the overall system of language needs in the United States; (2)
those addressing directly national capacity in Russian in the
form of field development and strengthening; and (3) those
addressing Russian programs in the schools and the colleges and
universities.
The Overall System of Language Needs in the United States
Recommendation 1: A national database should be constructed
and maintained that provides information on current and
projected supply and demand, needs and capacity for Russian as
well as for other languages.
Rationale: We simply do not have the data on what the national
demand for Russian is, nor do we have a comprehensive picture
of the supply that the five sectors are delivering, in terms
both of numbers and of competency levels. On the strategic
level, an estimation of current and future needs, let alone
lost opportunities, is very difficult to make, nor is there an
accepted definition of capacity. The remedy for this situation
is data. The nation needs a data collection process that builds
on what is already being collected by private and public
associations, agencies, and institutions. This effort might
take the shape of a "Center for Language Statistics" whose
purpose would be to bring together electronically all the data
being collected into one central base, making the data
compatible, filling in the lacunae, adjusting to changing data
requirements, comprehensively analyzing the data, and broadly
disseminating the data and results of analysis. Such a process
could serve as a guide to policymakers and program designers in
all five sectors. In addition, it would provide important
information to students so that they could make informed
judgments concerning language choice and expectations of
proficiency as well as employment.
Recommendation 2: The United States should initiate a
long-term language policy planning process aimed at addressing
the strategic national needs for language in general and in the
LCTLs and Russian in particular.
Rationale: This country has in place, on an ad hoc basis,
language policy at the national, state, and local levels. The
problem is that this policy is not explicit, nor are the
policies at the different levels coordinated. Whether Russian
or any other LCTL survives in the educational system depends on
a myriad of local decisions, but the impact is indeed national.
On the other hand, the major national resource represented by
the rich diversity of our heritage communities is, for all
intents and purposes, going to waste as we spend most of our
effort inducing, for example, English speakers to learn Chinese
and native-speaking Chinese to learn English. Language policy
is important to this country and to the survival of Russian,
and some more explicit process needs to be set in place that
will begin to address the issues strategically on the national,
state, regional, and local levels. This "National Language
Strategy" needs to address the economic, political, and social
aspects of language policy and begin to come to grips with the
obstacles to and incentives for this country's having a
citizenry able to deal with others in a language other than
their native English.
Recommendation 3: A strategy must be devised to enable
individuals as well as institutions to have "on demand" access
to expertise, programs, and learning materials, all of which
are accumulated centrally and answer to fieldwide standards of
quality.
Rationale: The language learning needs called for in today's
world entail the delivery of learning environments to more
learners of more languages for more language functions. Given
this vastly enlarged mandate, no institution or program can be
expected to have the resources and expertise to provide the
wide range of learning environments required. Nor is language
learning any longer conceivable exclusively in terms of
organized programs for young learners. The "just in time, just
in place, and just in need" language learning delivery system
has to be put in place, allowing learning on demand as
professionals engaged in their careers encounter the need for
language. Accordingly, each language field should have
available one or more such "Language Resource Centers" devoted
explicitly to its own needs (see below). Such centers should
be sustainable because the services and materials they provide
are valuable enough to survive on the "market." However, it
makes little sense for each field to have to develop its own
electronic communications system, its own software development
shop, its own video materials development facilities; nor is it
reasonable to expect each LCTL field to have on its own the
expertise needed to support such facilities. Such resources
and expertise should be provided centrally, presumably in the
form of a national language systems development and delivery
shop. Again, in the interest of quality and
cost-effectiveness, the existence of such a facility would
greatly assist the establishment of the language-specific
national resource centers, which in turn would make possible
the kind of individualized instruction and program reform
called for throughout this study.(1)
Aspects of National Capacity: Field Development
Recommendation 4: Graduate education in Russian/Slavic should
be reformed in order to produce more effectively the expertise
needed to strengthen Russian language learning and teaching in
the United States.
Rationale: The expertise base of the Russian field for all
four domestic sectors depends on the graduate education
provided by American institutions of higher learning. Given
the dearth of professional second language acquisition (SLA)
expertise in Russian, a special effort must be made to
establish a set of flagship graduate programs in applied
linguistics and Russian as a second language. Because of the
sparseness of SLA expertise in existing faculties around the
country, graduate programs so designed would have to be
regional, serving areas of the country and drawing upon faculty
from different institutions, presumably by means of
telecommunications. The expertise required for such graduate
programs would include anthropological, cognitive,
sociological, and educational as well as linguistic.
Recommendation 5: Develop a fieldwide "Language Learning
Framework."
Rationale: Russian programs at all levels of education and in
all supply sectors are in need of standards by which students
and policymakers can assess their success or failure. In
particular, decisions regarding design of curricula, learning
materials, and teacher training should be made on the basis of
agreed-upon fieldwide standards defining what learning and what
outcomes are expected for which goals. Such standards must be
directed at defining what knowledge is required for what
communication tasks, and how learners can design and manage
their own learning under the conditions present in the local
learning environment. Such a "Language Learning Framework" can
then serve as a fieldwide guide to the design of language
training programs, materials, and teacher training programs.
It cannot dictate what each institution does, but it will allow
local policymakers to place their program design and results in
a national perspective.(2)
Recommendation 6: Develop and support a National Russian
Language Resource Center.
Rationale: In order for reform to take place at the
institutional level, as we discuss below, particularly reform
directed toward a much broader menu of learning options, many
more resources are needed than any one institution can muster
on its own. Therefore, a strategy is needed to accumulate the
resources of a field, particularly one with relatively sparse
resources like Russian (as compared with French, for example),
and distribute them to individuals for "just in time" learning
or to programs that are in need of supplemental resources
unavailable at the local level. One possible strategy is to
develop a fieldwide national resource center that, for the most
part, collects and distributes resources electronically. To
assure quality, such a fieldwide enterprise should be overseen
by a national panel of experts drawn from all five sectors. In
addition, its existence should be validated by the demands made
on it by programs around the country. In fact, if one center
is not up to the task, competition from another is to be
encouraged.
Recommendation 7: Develop a fieldwide planning process.
Rationale: The Russian field is facing a crisis within the
academic sector as a result of significant reductions in
student enrollments; these enrollment reductions threaten
support for graduate students as well as the very existence of
school, undergraduate, and graduate programs. (Such enrollment
cycles have occurred in the past, but the changed status of
Russia and the real possibility of greatly reduced federal
funding suggest that merely waiting for the inevitable
"upswing" may be futile.) This problem has direct consequences
far beyond the academic sector. On the one hand, diminished
student enrollments reduce the pool of Americans knowing
Russian from which other sectors draw. On the other hand,
these reductions diminish the support for graduate students and
put at risk the very existence of graduate programs, a direct
threat to the future expertise base of the field. Thus, all
sectors have a stake in addressing these and other issues
raised in the present report. Unfortunately, though, the
supply sectors have no experience either in collaboration or in
strategic planning. Inaction, essentially relying on the
natural course of events under these uncertain conditions,
seems foolhardy, particularly when there is little risk in
attempting such strategic planning and policy formulation.
Therefore, we propose the establishment of a fieldwide task
force, with representation from all the sectors and existing
national organizations, including: the American Association
for the Advancement of Slavic Studies, the American Association
of Teachers of Slavic and East European Languages, the American
Council of Teachers of Russian, the Center for the Advancement
of Language Learning, the National Council of Organizations of
Less Commonly Taught Languages, the National Foreign Language
Center, the Foreign Service Institute, the Defense Language
Institute, the Interagency Language Roundtable, AT&T Language
Line Services, and any other interested stakeholder. The
mandate of this task force is to develop an ongoing strategic
planning process, based on a coordinated data collection
system,(3) as well as to serve as a national voice for Russian
in language policy discussions in the public and private
sectors.
This process should result in a mechanism to ensure information
sharing and collaboration across all supply sectors. Equally
important as developing a strategic planning and policy
formulation process are the will and the means to turn
strategic planning into action. At this point there are no
mechanisms to enable all five supply sectors to become informed
about one another, let alone to share valuable resources. This
task force must develop a permanent venue, perhaps in the form
of a National Russian Language Coordinating Council, that
brings together representatives from the academic, heritage,
private, and public sectors for the purpose at least of
exploring the issues raised in this report and the possibility
of concerted effort in their behalf. Effective communication
of this entire process will require, at the minimum, the
setting up of a page, or a set of pages, on the World Wide Web,
thus enabling input and information dissemination nationally
and worldwide.
Recommendation 8: Establish a national initiative to support
flagship programs.
Rationale: As this report is being written, important programs
in schools and in colleges and universities across the nation
are coming under threat of reduction or elimination as a result
of declining enrollments. Accordingly, a mechanism is needed
to guarantee the continued existence of a critical mass of
Russian language flagship programs in schools and universities,
particularly in the current atmosphere of inattention to Russia
and Russian. The initiative should include a range of
measures, for example:
* A national alert network, enabling the field to respond by
providing testimony to policymakers who are threatening
important programs.
* A reform plan outlining a concrete agenda for strengthening
both the attractiveness and the effectiveness of
institutional flagship programs. This reform should be
supported by the field in the form of assistance from the
National Russian Language Resource Center, contingent upon
agreement from administrators to leave institutional
resources in place to implement the reform.
* Private and public funding efforts aimed at providing some
sort of temporary subsidy to flagship programs to prevent
marginal enrollments from eliminating whole courses or
eliminating entire programs. (On the school level this
subsidy can take the shape of support for exchanges with
Russia, which is a proven method for winning support from
administrators and for drawing students into Russian
courses.)
* Electronic links among these flagship programs that would
enable them to support each other and serve as a collective
national resource for the field.
Such an initiative on the national level could properly be
viewed as maintaining diversity in high school language
offerings, for without such intervention there is a genuine
risk that the LCTLs, including Russian, could be eliminated
from the schools, if not from most colleges and universities.
The Schools and the Colleges and Universities
The Schools
Recommendation 9: Develop a strong high school component of
the National Russian Language Resource Center that would be
capable of providing, through telecommunications and computer
networks, at least the following:
* in-service teacher training in pedagogy and, in particular,
in spoken-Russian skills;
* high-quality pedagogical materials developed by other
experienced teachers and by SLA experts;
* authentic materials in the form of current newspaper
articles, movies, and television programming;
* on-line and downloadable courses and modules for students at
different levels to work on independently after school and
while in multilevel courses;
* attractive cultural materials that can be used to strengthen
the general-education component of beginning and intermediate
courses, in order to increase retention of students; and
* on-line telecommunications capability to permit information
sharing and networking" among teachers and among learners.
Rationale: Measures like these are aimed at addressing the
"marginalized" status of Russian programs in schools by:
* providing assistance in drawing students into the program as
well as retaining students once they are enrolled by
providing a much richer, more attractive, individualized
curriculum that addresses student motivations, goals, and
expectations;
* providing more time-on-task for students, particularly those
trapped in large or multilevel classes, through computer and
telecommunications technology;
* freeing teachers' time for planning and student consultation
by providing pedagogical and authentic materials that are
immediately usable in class;
* providing convenient, nonthreatening in-service teacher
training, particularly upgrading of language skills; and
* providing contact with other Russian teachers, something that
is sorely lacking in schools, where as a rule the Russian
program has only one (often part-time) teacher.
Through a project sponsored by the American Council of Teachers
of Russian and funded by the Ford Foundation, a network of
"hub" high school programs has been formed, each hub serving as
a resource for a cluster of schools located nearby. With
funding from the Department of Defense, Phillips Academy has
established an electronic network along the lines suggested
here but for the moment serving essentially the New England
area. These initiatives can serve as the basis for the high
school component of the National Russian Language Resource
Center.
Recommendation 10: Actively promulgate exchange and study
abroad, seeking support from the field for the design and
management of such programs and from funding sources to expand
the possibilities to schools and students whose resources have
precluded such activities.
Rationale: Our questionnaires clearly indicate that exchanges
and study-abroad programs are perhaps the most effective
measures for recruiting and retaining students, as well as for
winning the support of principals and school boards, not to
mention the value of this experience for increasing cultural
knowledge and spoken skills. Such programs are expensive, so
means must be found to provide this valuable learning
opportunity to all schools and students, regardless of their
ability to pay. This is a reasonable role for the federal
government to play, as it does for students of Russian, for
example, in the Freedom Support Act. With the reduction or
elimination of many of these federal programs now and in the
future, support from other sources must be found.
The Colleges and Universities
Recommendation 11: In accord with the "Language Learning
Framework" and individualized and modularized modes of
learning, promote the redesign of the language curriculum to
conform more effectively with explicitly stated institutional
missions and students goals and motivations, with special
attention to the general-education, heritage, and,
particularly, applied missions.
Rationale: The numbers of students beginning and continuing
Russian can be increased by improving program designs aimed at
general education (in order to attract and hold more students
with an interest in Russian but whose future plans with regard
to the language are not yet developed); at the heritage mission
(for students of Russian heritage, the numbers of whom will be
growing); and at applied skills (to attract and hold students
from the science and professional disciplines with clear
occupational interests in Russian). Such a reform plan is
beyond the means of most institutions, but the development of
the National Russian Language Resource Center is intended to
assist in the design problems as well as to supplement the
expertise and resources of the local programs.(4)
Recommendation 12: Reallocate institutional resources from
lower- to higher-level courses as well as to study abroad.
Rationale: If the goal of a program is to produce students
having usable skills in Russian, more emphasis must be placed
on bringing students to higher levels of competency in Russian.
At the present time, most programs' resources are being
directed to the lower levels of instruction, where most of the
students are. However, it is at the higher levels that the
learning task becomes much more complicated and more demanding
of resources, particularly if in-country immersion is included
as an integral part of the program. It is clear that very few
institutions can undertake the broad educational reform
advocated here without the fieldwide resources as provided by
the National Russian Language Resource Center proposed in this
study. This center can provide courses and modules to
accommodate all the missions mentioned, adding to the resources
and strengths of each institution and program.
Articulation
Recommendation 13: Form a national coalition of schools and
colleges/universities that subscribe to the fieldwide "Russian
Language Learning Framework"; seek funding for schools and
colleges/universities to work collectively to revise the
framework, and develop compatible curricula at both levels.
Rationale: School and university language programs are in
desperate need of improved articulation. As we have seen all
too often, students with several years of high school Russian
are forced to begin the language again at the undergraduate
level. One of the principal reasons for this is the lack of
understanding on the part of college educators of what goes on
in the schools as well as a general lack of common goals for
"basic Russian." The "Language Learning Framework" is intended
to eliminate these problems. However, the implementation of
this framework requires a special effort, one that will
guarantee the cumulative effect of learning across levels by
defining missions, improving placements, and specifying
appropriate remediation. If a National Coalition of Russian
Language Programs, including schools and universities, would
adopt the framework (or any other set of common standards),
they could assure their students that a set of colleges and
universities were prepared to build upon what they had done in
school, while on the other hand college programs could be
confident about a pipeline of students attuned to their program
goals. Whatever the exact details of the effort, clearly a
special effort in behalf of school/college articulation, in
addition to study abroad, is the surest way to improve the
level of competency of students as well as to increase
retention rates and reduce student frustration.
SUMMARY
We take it as given that Russian is central to the national
well-being of the United States and will remain so for the
foreseeable future. However, given the fact that Russian takes
a great deal of time for native English speakers to master, it
is probable that Russian will remain an LCTL, with relatively
low student enrollments. We also understand that this means
that resources for this and the other LCTLs are limited.
Therefore, our recommendations, focusing on quality improvement
with maximum management of resources, are designed to (1)
maintain and strengthen capacity, by focusing on field
architecture, particularly the base structure components and
flagship programs; (2) merge field and institutional resources
by bringing field capacity to bear directly on local resources
through electronic communications managed by a new National
Russian Language Resource Center, which will assist programs to
become compatible with these resources and modes of delivery;
and (3) redesign education programs to accommodate all missions
and to maximize higher-level skills, and to accommodate
individualized and modularized learning.
If, as we have argued in Chapters 1 and 2, it is difficult, if
not impossible, to determine to a sufficient degree of accuracy
the nation's needs and unrealized opportunities, then the focus
on building capacity is the only rational approach to the
problem of language in the United States. In order to meet any
and all future contingencies involving Russian, policy must be
directed at ensuring the existence of a strong Russian language
field in the United States. We feel that the preceding
recommendations, aimed at strengthening the essential parts of
the Russian field architecture, can be of immense benefit in
guaranteeing for all supply sectors the existence and quality
of the Russian language training programs in our schools,
colleges, and universities, upon which individual student
careers and the welfare of the nation as a whole depend.
Endnotes
1. Such a system of national language resource centers is
distinct from the Title VI National Foreign Language Resource
Centers as presently defined, in that the Title VI centers do
not have a language-field-specific mission.
2. As part of the general language frameworks initiative of the
National Council of Organizations of Less Commonly Taught
Languages (NCOLCTL), with Ford Foundation support, a draft of a
"Language Learning Framework" for Russian is presently under
development under the aegis of the American Association of
Teachers of Slavic and East European Languages and the American
Council of Teachers of Russian. See the forthcoming "Russian
Language Learning Framework" being developed by Peter Merrill
and Maria D. Lekic, ms.
3. Such a fieldwide data collection process is already under
way, initiated by the NCOLCTL with Ford Foundation funding.
4. A general plan for such reform is given in Brecht and
Walton, "The Future Shape of Language Learning in the New World
of Global Communication: Consequences for Higher Education and
Beyond," Foreign Languae Learning: The Journey of a Lifetime
(Lincolnwood, IL: National Textbook Company, 1995) pp.
110-152.
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