The EU’s multilingualism policy promotes language diversity and encourages language learning. While each EU country sets its own language policies, the EU supports cooperation, shares best practices and pursues common goals.
Key EU policies
The 2019 EU Council Recommendation on teaching and learning languages guides EU policy in this field. It sets a goal of all pupils acquiring, before the end of upper secondary,
- proficiency in the language of schooling
- knowledge of 2 additional languages.
It also calls for particular attention to be paid to language awareness in multilingual classrooms. This means valuing the linguistic diversity of our learners and using it as a precious educational resource.
Following the Recommendation, the Commission published the report Education Begins with Language, which outlines the necessity and value of learning languages and suggests innovative approaches to teaching them.
Main goals of the EU’s multilingualism policy
EU language policy aims to
- promote language learning, encouraging fluency in 2 additional languages beyond one’s mother tongue ("mother tongue plus 2")
- raise awareness of Europe’s linguistic diversity and its benefits for dialogue and competitiveness
- support a multilingual economy
- make EU legislation, procedures and information accessible in all official languages.
Legal basis
Multilingualism is anchored in the EU’s founding treaties.
- Article 3 of the Treaty on European Union (TEU) requires the EU to respect cultural and linguistic diversity
- Article 165(2) of the Treaty on the Functioning of the European Union (TFEU) promotes teaching and dissemination of EU countries' languages
In addition, Title III of the Charter of Fundamental Rights of the European Union requires respect for cultural, religious and linguistic diversity and prohibits discrimination.
Policy developments over time
- 2019
Council Recommendation on a comprehensive approach to the teaching and learning of languages
The recommendation set the goal of proficiency in the language of schooling and 2 additional languages. It called for linguistic diversity to be valued in classrooms. - 2018
Council Recommendation on key competences for lifelong learning
The Council recognised multilingual competence as one of the 8 key competences essential for personal development, active citizenship, inclusion and employability. - 2017
Boosting growth and cohesion in EU border regions
This report highlighted the role of multilingualism in cross-border mobility and access to public services. Language skills are seen as a practical tool to boost mobility, social inclusion and regional development.
Strengthening European Identity through Education and Culture – the European Commission's contribution to the Leaders' meeting in Gothenburg
The Commission set out its vision for the development of a European Education Area by 2025 and proposed a benchmark: by 2025, all upper secondary graduates should speak 2 languages in addition to their mother tongue(s). - 2014
Council Conclusions on multilingualism and the development of language competences
The Council called for stronger language learning support and teacher training at all levels of education. - 2008
Multilingualism: an asset for Europe and a shared commitment
The Commission emphasised linguistic diversity as both a cultural and an economic strength. It called for multilingualism to be woven into all EU policies, and reiterated the goal of enabling EU citizens to speak at least 2 other languages besides their mother tongue.Council Resolution of 21 November 2008 on a European strategy for multilingualism
The Council invited EU countries to support lifelong language learning, intercultural dialogue and the circulation of works, ideas and knowledge through translation. - 2007
Report on implementation of the Action Plan "Promoting Language Learning and Linguistic Diversity"
This report reviewed progress and confirmed that multilingualism is central to lifelong learning, cultural exchanges and economic opportunity. - 2005
European Indicator of Language Competence
This tool measures language skills and helps policymakers track competences, guide education policy and enhance workforce mobility.
A New Framework Strategy for Multilingualism
The strategy reaffirmed the importance of multilingualism for society, the economy and EU communication, urging member countries to take further action. - 2003
Promoting Language Learning and Linguistic Diversity: An Action Plan 2004-2006
This plan outlined concrete measures to foster lifelong language learning and improve language teaching across the EU. - 2002
Barcelona European Council conclusions
EU leaders urged member countries to take further action to improve the mastery of basic skills, including by making sure students learn at least 2 foreign languages from an early age. - 2001
European Year of Languages 2001
This initiative raised awareness of Europe’s rich linguistic diversity and promoted lifelong language learning. - 1997
Council Resolution on the early teaching of European Union languages
To support multilingualism and mutual understanding from a young age, the Council encourages EU countries to promote early learning of 1 or more foreign languages, train teachers and develop teaching materials. - 1995
White Paper on Education and Training – Teaching and Learning – Towards the Learning Society
The White Paper highlights language learning as key to mobility and employability. The Commission encourages early learning of 2 foreign languages using innovative methods.
Cooperation with international organisations
Council of Europe
The Commission works with the Council of Europe and its European Centre for Modern Languages (ECML) to improve language education and tackle challenges in national systems.
This cooperation is underpinned by the 2019 Council Recommendation on a comprehensive approach to the teaching and learning of languages, focusing on
- teaching and assessment of language skills (a common European framework)
- use of digital tools to support language teaching and learning
- support for multilingual classrooms
- linguistic diversity.
Find out more about cooperation areas and activities, and how to get involved:
- European Commission and ECML cooperation – Innovative methodologies and assessment in language learning
- Training and consultancy activities (multilingual classrooms, ICT in language teaching and learning, and relating language curricula, tests and examinations to the Common European Framework of Reference)
Organisation for Economic Cooperation and Development (OECD)
Since 2018, the Commission has worked with the OECD to develop the Foreign Language Assessment (FLA) as part of the Programme for International Student Assessment (PISA). In 2025, more than 20 countries will assess students’ competence in English as a foreign language.
Evidence-based policymaking and peer learning
The Commission’s work in this area includes
- organising various activities with policy experts and stakeholders, including panel discussions, seminars and online events
- commissioning research to support evidence-based policymaking and peer learning
- publishing the annual Education and Training Monitor to track progress across EU countries
- joining forces with Eurostat and the OECD to collect and analyse language education data.
Multilingualism in practice – key actions
The EU applies multilingualism in its institutions, and promotes language diversity and learning through a range of programmes and initiatives.