Language Training for Adult Migrants

6. Integrate language with vocational training and co‑operate with employers

WHAT and WHY?

Many language courses designed for everyday life are not particularly relevant or sufficient for the realities of the labour market. Few courses available today model relevant workplace interactions or teach the relevant vocabulary migrants will use on the job. Many adult migrants may be demotivated to continue language courses perceived to be only somewhat relevant when they could be job-seeking, leading to difficulties integrating in other areas of life. Vocation-specific language training – ideally provided on the job – is an effective tool to circumvent such problems, allowing migrants to build work-related language skills while gathering work experience in the host country. Indeed, combining language instruction and vocational training has proven more effective than separate, parallel or sequential trainings in terms of future labour market inclusion. It also appears that learners advance more quickly and are more motivated to complete their programme successfully when the curriculum builds on their career goals and allows participants to apply skills to real-life situations (Roberts, 2003; Chenven, 2004; Delander et al., 2005; Friedenberg, 2014). On-the‑job language training may also help address employers’ reticence about immigrants’ language qualifications. Co‑operation with employers can increase their understanding of what the language levels actually mean and assure them that successful learners have in fact acquired the language skills required for the job (Chiswick and Miller, 2009).

WHO?

To date, the number of immigrants benefiting from vocation-specific language training in OECD countries is still limited due to the fact that such training is costly and difficult to organise. The number of immigrants interested in a particular occupation or sector is often too low for providers to consider it worthwhile to develop the capacity to organise trainings regularly. At the same time, the number of employers willing to accommodate language learning in the workplace is limited, which means that language and vocational training are often offered in parallel by separate providers and funded by stakeholders with different objectives.

HOW?

Despite its costs and organisational challenges, vocational language training is gradually spreading across OECD countries in different forms:

• Vocational language courses tailored to specific high-need occupations

• Courses focused on general workplace scenarios or job interviews

• “On-the‑job” sessions in partnership with specific employers

• In connection with Active Labour Market Policies and job placement

Vocation-specific courses have been embraced by Austria, Australia, Belgium, Denmark, Germany, Israel, Luxembourg, Portugal, and Sweden (see Table 6.1). Others, such as Lithuania, have made the addition of vocational language training a part of recent plans for action on integration. However, only a few countries have thus far been able to deliver work-related trainings in a wide range of occupations. This is the case, for example, in Portugal, where technical, sector-specific Portuguese courses are offered in retailing, hospitality, beauty care, construction, and civil engineering. Portugal has also recently authorised Qualification Centres to host these courses so that less-qualified trainees may gain easier access to skills and qualification reinforcement programmes onsite. Likewise, Sweden provides specific language schemes for certain occupations such as teachers, academics, engineers, economists, lawyers, social/human resources personnel, systems specialists, health care workers, entrepreneurs, bakers, craftsmen, and bus and truck drivers. Germany has implemented special vocational training courses for health, retail, and technical professions and is currently testing courses for apprentices in craft trades.

Most countries offering vocational language training have rather opted for a general course on workplace language needs. This reflects the difficulty of developing and implementing highly technical language courses for specific vocations when the number of interested migrants is low. In these general courses, migrants would benefit from a degree of individual attention within the course, through breakout sessions that are vocation specific or through differentiated vocabulary study. This can be facilitated in-class through effective implementation of ICT (see Lesson 10).

To expand the availability of on-the‑job and vocational language training offers, there is also the option of engaging with specific employers or sectors. Employers can be encouraged in information sessions or in one‑on-one meetings to cover or reduce the organisational costs associated with vocational language training, for example by providing classroom space or allowing employees to participate in language learning during working hours (see Box 6.1). Training can be organised independently by employers, trade unions, or structurally through state‑sponsored language programmes. In state‑sponsored programmes, vocation-specific training can be provided as a specific track for learners (often in the framework of bridging offers) in certain professions with particular employers, or as a second step for all working-age learners who have attained the basic proficiency level required for their profession. On-the‑job programmes help employers better understand the needed language competency, and employers can, in turn, become good partners in development of targeted language programmes. The Canadian province of Quebec has developed partnerships with employers and unions in addition to institutional actors and the community to strengthen on-the‑job training to meet the needs of migrant employees. Quebec has also worked to create a reference framework to determine the minimum linguistic requirements for varying professions and trades.

On-the‑job programmes remain rare, with companies citing the administrative burden as a disadvantage to implementation. Some countries have, thus, explored other solutions. In Sweden, the Sfi-Yrkesvux programme combines Swedish courses and language support combined with studies for a profession in the adult education system. Language support is continued during related internships or work placement. Luxembourg has instituted a programme called “Linguistic Leave” for workers who want to improve their Luxembourgish. The migrant’s employer must approve the leave, but any decision to deny the application must be justified. The employee is entitled to up to 200 hours of paid leave to attend language training, and the employer is reimbursed 50% of the compensatory benefit by the state. Language teachers have evaluated the relevance of industry-specific company-organised programmes positively compared to traditional courses (Ramboll, 2020).

Box 6.1. Vocational language training in Germany, Finland, and Norway

In 2016, Germany put in place a wide‑reaching new system of free vocation-specific language courses, entitled “German for professional purposes”. The courses target foreign-born unemployed, job- or apprenticeship-seekers and their children who have completed mandatory schooling and intermediate German language training (CEFR B1). Migrants in employment are eligible for the course as well, but they must pay 50% of the cost if their income is above a certain threshold. Courses teach German for the job market and in some instances for specific professions, including German language skills required for the recognition of foreign qualifications (e.g. medicine). They can include site visits. Vocational language training is offered through level C2 and can start under B1 for those who not yet attained a B1 level of German after attending an integration course. Germany has also taken an innovative approach in tackling difficulties associated with co‑ordination, as the vocation-specific language training together with the integration course constitute the comprehensive programme (‘Gesamtprogramm Sprache’) that is administered by the Federal Office for Migration and Refugees and funded both by the Ministry of the Interior (integration courses) and the Ministry of Labour (vocation-specific courses).

The Federal Office for Migration and Refugees (BAMF) has also successfully partnered with large companies to provide sector-specific language courses for migrants. Working with Deutsche Telekom, BAMF set up a virtual classroom to reach refugees working at various corporate locations nationwide (2‑3 per site). In 2017, through this programme, 100 refugees were able to access both language and on-the‑job IT training.

As part of the Finnish Integration Plan, local Public Employment Service Offices (under the Ministry of Employment and Economy) provide language courses that include a “working life period,” during which migrants work at a Finnish worksite. The office also provides support services for companies that employ migrants, including pay subsidies to cover hiring costs and training time. While community coaching is one aspect of this programme the employers can also seek funding for Workplace Finnish or Workplace Swedish, and the programme is tailored to the needs and language proficiency of the employees. Duration of the programme, delivery method (in person or distance), group size, and time of course offering are all negotiable. The employer pays 30‑50% of the training costs, and the rest is covered.

Skills Norway, which is responsible for implementation and development of pedagogical approaches related to the teaching of Norwegian to adult immigrants, offers several options for vocational learning. In addition to language courses that address workplace situations, Skills Norway offers a job internship placement. While limited resources do not allow for provision of on-the‑job language training, public or private entities that seek to provide training to workers can apply for Kompetansepluss (Skills Plus) funding in order to organise their own course. Certain Norwegian language training providers independently advertise their assistance to employers in applying for the funding and organising courses.

Another way to enhance the effectiveness of language training with regards to labour market integration and to strengthen on-the‑job and vocational language training options is to involve actors responsible for Active Labour Market Policies (ALMPs) in the design and delivery of language programmes. In co‑operation with employers and professional bodies, ALMP providers can develop curricula, teaching material, teacher training, and certifications for integrated language and vocational training and link language training to out-of-class activities, such as mentoring and job placements schemes. Australia is among the OECD countries that pioneered on-the‑job language training. Beginning in 1991, Australian authorities provided funding to employers for training their workers in ‘Workplace English Language and Literary’ (WELL). While this programme has ended, other government-funded courses are now in place. Australia’s ‘Adult Migrant English Programme’ (AMEP) also includes a ‘Settlement Language Pathways to Employment and Training’ (SLPET), entitling participants to up to 200 hours of vocation-specific language tuition and up to 80 hours of work placements.

Table 6.1. Implementation of Vocational Language Training in OECD countries

	Vocational (General Workplace) Language Courses Available	Vocational Language Courses Targeting Specific Job Categories	On-the‑Job Language Courses Available
Australia	Yes	/	Yes
Austria	Yes	Yes (care workers, early childhood education, production and stock, tourism, business, and nursing staff)	No
Belgium	Yes	Yes	No
Canada	Yes (in some locations; not systematically)	No at the federal level. Quebec offers part-time courses for law, administration, applied sciences, health, and tourism. A course for cooking/restauranteurs is in development.	Yes (in some locations; not systematically)
Chile	/	/	/
Colombia	/	/	/
Czech Republic	Yes	No	No
Denmark	Yes	/	Yes (project in pilot form)
Estonia	No	No	No
Finland	Yes	Yes	Yes
France	No	No	No
Germany	Yes	Yes (medical, commercial, trade and technology)	Yes (not systematically)
Greece	No	No	No
Hungary	No	No	No
Iceland	/	/	/
Ireland	No	No	No
Israel	Yes	Yes (hi-tech sector, engineering, medical)	Yes (kibbutz work programme)
Italy	Yes	Yes (in some locations)	No
Japan	Yes	Yes (nursing)	No
Korea	/	/	/
Latvia	No	No	Yes (80 hours for refugees and those with subsidiary protection)
Lithuania	No	No	No (although possible under a Competence Voucher programme)
Luxembourg	No	No	No
Mexico	No	No	No
Netherlands	Yes (in some cases)	No	Yes (not systematically)
New Zealand	No (although some centres offer this)	No	Yes
Norway	Yes (not systematically)	Yes (health care)	Yes
Poland	No	No	No
Portugal	Yes	Yes (hospitality, retail, beauty care, construction, civil engineering)	/
Slovak Republic	/	/	/
Slovenia	No	No	No
Spain	Yes	?	Yes
Sweden	Yes (not systematically)	Yes (medical, architecture, engineering, and others)	Yes (not systematically)
Switzerland	Yes	Yes (construction, restaurant, cleaning, agriculture)	Yes
Turkey	No	No	Yes
United Kingdom	No	No	No
United States	Yes (not systematically)	/	Yes (not systematically)

Note: n.a. = information not available; See Table 1.1.

Source: OECD questionnaire on language training for adult migrants 2017.