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ELT CHOUTARI | Nepal’s First Digital ELT Magazine
IntroductionAs a researcher and practitioner who has worked with language and education initiatives across several countries, I am often struck by the commonalities and unique characteristics of different approaches to incorporating Indigenous and minority languages into education systems. While each context demands its solutions, there is value in understanding how various countries have approached similar challenges. These efforts align with international frameworks like the UN Declaration on the Rights of Indigenous Peoples (UNDRIP), which affirms Indigenous peoples’ right to establish and control their educational systems and institutions providing education in their languages (United Nations, 2007).The Constitution of Nepal 2015 makes a bold commitment to providing education in children’s mother tongues up to the secondary level – one of the strongest constitutional protections for linguistic rights in education globally. As Nepal works to implement this vision in over 123 languages (National Statistics Office, 2021b, 2021a), it joins other nations grappling with similar aspirations and challenges (see Benson & Kosonen, 2021).This article examines commonalities and challenges across different contexts where Indigenous and minority languages are being incorporated into formal education systems. Rather than suggesting that any single approach should be replicated, the aim is to illuminate the diverse ways countries are working to fulfil children’s right to learn in their mother tongue. By examining these cases, we can reflect on common challenges, celebrate unique solutions, and perhaps find inspiration for context-specific innovations.Mother tongue-based Multilingual Education in NepalNepal’s commitment to mother tongue-based multilingual education (MTB-MLE) represents one of the strongest constitutional protections for linguistic rights globally. The 2015 constitution declares that “Every Nepali community living in Nepal shall have the right to acquire education in its mother tongue up to the secondary level” (GoN, 2015). This ambitious policy aims to serve some 7.7 million students across over 35,000 schools (Nepal Education Cluster, 2020), in a context where less than half the population speaks Nepali, the official language, as their first language (National Statistics Office, 2021b).The model adopted in Nepal follows an early-exit transition approach, which sees children begin learning in their mother tongue and gradually transition to using Nepali as the medium of instruction by grade 3 (Fillmore, 2020). While this represents a shorter period of mother tongue instruction than most experts recommend (Skutnabb‐Kangas & McCarty, 2008), it marks a significant shift from historical Nepali-only policies and provides vital cognitive and social benefits for children in their early years of schooling.Research on MTB-MLE programmes in Nepal has shown promising results. When children are supported to use their mother tongue in the classroom, they demonstrate greater comprehension, better retention, and more creativity (Phyak, 2016; RTI International, 2014; World Education, 2017). Teachers report seeing “smiles on their faces” and increased engagement when using the language children know best (Fillmore & Paudel, 2022). These positive outcomes encourage continuing efforts to expand and strengthen MTB-MLE implementation across Nepal’s diverse linguistic landscape.Implementing this ambitious policy presents significant challenges. Resource development and teacher preparation are persistent issues (Fillmore & Paudel, 2022) while Nepal’s transition to a federal system has added new layers of complexity to education governance (Phyak & Ojha, 2019). Additionally, the demand for English-medium instruction, particularly in urban areas, creates pressure that can work against mother-tongue education initiatives (Sah & Li, 2018).Aboriginal and Torres Strait Islander language programmes in AustraliaLike Nepal, Australia boasts a rich linguistic landscape, with over 400 Indigenous languages existing before colonisation, and hundreds of migrant languages that have formed part of the linguistic landscape post-colonisation. However, Australian Indigenous languages are being lost at among the highest rates globally (Fukui, 2019). Only about 15 languages have a strong cohort of young, fluent speakers, though many more are being actively revitalised (AIATSIS, 2020). Education has greatly contributed to this decline, as teaching has historically and (for the most part continues to be) delivered almost exclusively through Standard Australian English (Hogarth, 2019). Research in Australia has shown that learning and speaking Indigenous languages can counteract the impacts of colonisation and bring benefits for educational outcomes (Jones et al., 2011), student engagement and attendance (Dickson, 2010; Lowe et al., 2019), social and emotional wellbeing (Dockery, 2020; Taff et al., 2018), and even health outcomes (Mayi Kuwayu, 2024).Recognising this, recent policy developments have created new spaces for Indigenous languages in Australian schools. The national curriculum now provides pathways for teaching Indigenous languages as first, revival or second languages (ACARA, 2019). Individual states have also developed their approaches – for example, South Australia’s Bilingual Education Policy aims to “strengthen and reinvigorate the learning of Aboriginal languages” (Department of Education, 2019), while New South Wales has passed legislation to “promote, reawaken, nurture and grow Aboriginal languages” (NSW Government, 2017). The Northern Territory has a long history of strong, community-led bilingual schooling for Aboriginal children (Devlin et al., 2017), building on an approach described as ‘Two Ways’ or ‘Both ways’ education, which takes Indigenous languages and knowledge as the basis for later scaffolding students across into engagement with Western, English-medium content (Ober, 2009; Wignell, 1999).In Queensland, where I live and work, teaching Aboriginal and Torres Strait Islander languages is on the rise in schools, creating opportunities for meaningful community involvement while supporting student wellbeing and language revitalisation efforts. While programmes vary significantly based on local contexts and language situations, successful initiatives are characterised by strong community leadership and sustainable approaches to programme delivery (Crump et al., Forthcoming). Most programs focus on teaching language and culture for 1-2 hours per week, though some schools are exploring ways to integrate Indigenous languages more broadly across the curriculum.Unlike Nepal’s nationwide mandate for mother tongue education, Australia’s approach to Indigenous languages in education remains more localised and varied. However, both countries face similar challenges around resource development, teacher training, and balancing local languages with national language priorities.Mother tongue-based multilingual education in the PhilippinesThe Philippines was the first Southeast Asian nation to implement mother tongue-based multilingual education at a national scale. With over 170 languages (Eberhard et al., 2024) and most citizens speaking three or more languages, the Philippines demonstrates how a highly multilingual society can approach inclusive language education policy.In 2009, the Philippines made a landmark shift when legislated MTB-MLE nationally through Department of Education Order 74 (Department of Education, 2009). This was further strengthened by the Enhanced Basic Education Act of 2013 (Congress of the Philippines, 2013), which mandated the use of learners’ mother tongues as a medium of instruction in early grades. Today around 28 Indigenous languages are used as mediums of education (Eberhard et al., 2024).Like Nepal, this early transitional model represents a compromise between pedagogical ideals and practical constraints. While research suggests that longer periods of mother tongue instruction are optimal for cognitive development (Thomas & Collier, 2002), both countries have adopted early-exit approaches that balance linguistic rights with societal demands for national and international language proficiency.Early evaluations of MTB-MLE implementation have shown promising results (Ocampo, 2017). However, implementing such reforms at scale revealed persistent challenges around teacher training, materials development, and resource allocation (Fillmore, 2014; Metila et al., 2016). Many of these challenges mirror those faced in Nepal, where decentralisation has added additional complexity to implementation efforts. Both countries’ experiences highlight how strong policy frameworks must be matched with adequate resources and capacity building to achieve their inclusive aims.Fortunately, as the Philippines is further along in its MTB-MLE implementation journey, there is a growing body of research into effective approaches and supports. For example, extensive research with schools of different language ecology types has documented the creative and resourceful ways to address these challenges in their local contexts (Metila et al., 2017). Other research has shown that having a tailored instructional approach, materials, and bridging strategies for each language of instruction, that takes into account the characteristics of the language, is important for improving reading outcomes (Pouezevara, 2021).Māori language nests in Aotearoa (New Zealand)While I have not worked directly in Aotearoa (New Zealand), I draw inspiration and learning from the Māori language movement as one of the most successful examples of Indigenous language revitalisation through education.From the 1970s when the Māori language was seriously endangered, community-led initiatives have transformed both educational opportunities and language vitality. The Te Kōhanga Reo (language nest) movement, which began in the early 1980s, pioneered an approach that immerses young children in Māori language and culture, led by Māori elders and communities (Tocker, 2015). This grew into Kura Kaupapa Māori (Māori medium schools) that now serve students from early childhood through secondary education (Tocker, 2015).What distinguishes the Māori experience is the combination of strong community ownership, sustained policy support, and integration of language revitalisation with broader cultural and political aspirations (May, 2003). In 2023, over 75% of Māori students were enrolled in some form of Māori-language education and 12% were enrolled in Māori medium, where content is delivered in Māori for at least 51 per cent of the time (Ministry of Education, 2023). Māori is the official language of Aotearoa. Unlike the early-exit models adopted in Nepal and the Philippines, or the language as a subject model in most Australian jurisdictions, many Māori medium programmes maintain instruction in te reo Māori throughout schooling, supporting genuine bilingualism and biliteracy (McBride, 2016).ConclusionLooking across these diverse contexts, several common challenges and opportunities emerge in implementing mother tongue-based education (see also Angelo et al., 2022). First, all four contexts discussed grapple with resource development. The challenge is complicated by the need to not just translate existing materials but to develop culturally appropriate content that reflects local knowledge systems and ways of learning. Teacher preparation represents another shared challenge, with all four countries working to build a workforce capable of teaching in Indigenous and minority languages.The role of community emerges as crucial across all contexts. The success of Māori-medium education demonstrates how strong community ownership and leadership can drive sustainable language programmes. Similarly, Nepal’s transition to federalism aims to bring decision-making closer to communities, while the Philippines and Australia have found that programmes are most successful when communities are actively involved in their development and delivery.Each context also demonstrates different possible approaches to balancing local languages with national and international languages. Nepal and the Philippines have adopted early-exit transition models with a transfer to national and international languages from upper primary. This approach aims to provide crucial early learning support while meeting societal demands for proficiency in dominant languages. In contrast, Māori-medium schools maintain instruction in te reo Māori throughout schooling, supporting genuine bilingualism and cultural sovereignty. In Australia, approaches vary based on community circumstances and aspirations – from full bilingual programmes in communities where children speak Indigenous languages as their first language, to language revival programmes where communities are reclaiming languages, and ‘language as subject’ models where Indigenous languages are taught as heritage languages alongside the mainstream curriculum.What these examples make clear is that there is no single blueprint for incorporating Indigenous and minority languages into education systems. Success depends on adapting approaches to local contexts while ensuring adequate resources, sustained policy support, and meaningful community engagement. As we move through the International Decade of Indigenous Languages (2022-2032), these cases remind us that maintaining and revitalising Indigenous and minority languages through education remains both possible and vital.ReferencesACARA. (2019). Rationale. https://www.australiancurriculum.edu. au/f-10-curriculum/languages/framework-foraboriginal-languages-and-torres-strait-islanderlanguages/rationale/AIATSIS. (2020). National Indigenous Languages Report (p. 108). Australian Government Department of Infrastructure, Transport, Regional Development and Communications, the Australian Institute of Aboriginal and Torres Strait Islander Studies (AIATSIS), and the Australian National University. https://www.arts.gov.au/what-we-do/indigenous-arts-and-languages/national-indigenous-languages-reportAngelo, D., Disbray, S., & Wigglesworth, G. (2022). Learning (in) Indigenous Languages: Common Ground, Diverse Pathways (OECD Education Working Papers 278; OECD Education Working Papers, Vol. 278, p. 107). Organisation for Economic Co-operation and Development (OECD). https://doi.org/10.1787/e80ad1d4-enBenson, C., & Kosonen, K. (Eds.). (2021). Language Issues in Comparative Education II: Policy and Practice in Multilingual Education Based on Non-Dominant Languages. Brill | Sense. https://doi.org/10.1163/9789004449671Congress of the Philippines. (2013). Republic Act No. 10533 – Enhanced Basic Education Act of 2013.Crump, D., Thompson, L., Fillmore, N., & Disbray, S. (Forthcoming). Teaching First Nations Languages in Queensland Schools. In C. Steele, R. Ober, & R. Oliver (Eds.), Celebrating First Nations Languages and Language Learning in Australian Schools: Stories of Language Activism, Advocacy and Allyship.Department of Education. (2009). DepEd Order No. 74 s.2009 – Institutionalizing Mother Tongue-Based Multilingual Education.Department of Education. (2019). Aboriginal Education Strategy: 2019 to 2029. Government of South Australia.Devlin, B., Disbray, S., & Devlin, N. R. F. (Eds.). (2017). History of bilingual education in the Northern Territory: People, programs and policies. Springer Singapore. https://doi.org/10.1007/978-981-10-2078-0Dickson, G. (2010). No Warlpiri, no school?: A preliminary look at attendance in Warlpiri schools since introducing the first four hours of English policy. Ngoonjook, 35, 97–113. https://doi.org/10.3316/informit.880142325310560Dockery, A. M. (2020). Inter-generational transmission of Indigenous culture and children’s wellbeing: Evidence from Australia. International Journal of Intercultural Relations, 74, 80–93. https://doi.org/10.1016/j.ijintrel.2019.11.001Eberhard, D. M., Simons, G. F., & Fennig, C. D. (2024). Ethnologue: Languages of the World (Version Twenty-seventh edition) [Dataset]. http://www.ethnologue.comFillmore, N. (2014). Mother tongue-based multilingual education (MTB MLE) policy and implementation in Mindanao, Philippines: A grounded theory case study [Unpublished Masters Thesis, Deakin University]. https://doi.org/10.13140/RG.2.2.18044.39043Fillmore, N. (2020). Mother tongue-based multilingual education in Nepal: Past, present, and emerging trends. In A. W. Wiseman (Ed.), Annual Review of Comparative and International Education 2019 (Vol. 39, pp. 231–254). Emerald Publishing Limited. https://doi.org/10.1108/S1479-367920200000039020Fillmore, N., & Paudel, J. R. (2022). Policy to practice, national to local: Multilingual education at the meso and micro levels of Western Nepal. In L. Adinolfi, U. Bhattacharya, & P. Phyak (Eds.), Multilingual Education in South Asia: At the Intersection Between Policy and Practice (pp. 69–92). Routledge. https://doi.org/10.4324/9781003158660Fukui, M. (2019, November 30). Why Australia is known as a ‘graveyard of languages’. ABC News. https://www.abc.net.au/news/2019-11-30/language-loss-and-revival-australia-tongue-tied-and-fluent/11736450GoN. (2015). Constitution of Nepal. Government of Nepal (GoN).Hogarth, M. D. (2019). Y is standard oostralin English da onlii meens of kommunikashun: Kountaring White man privileg in da kurrikulum. English in Australia, 54(1), 5–11. https://doi.org/10.3316/aeipt.224527Jones, C., Chandler, M. J., & Lowe, K. (2011). Sounds, spelling and learning to read an Aboriginal language. In J. Hobson, K. Lowe, S. Poetsch, & M. Walsh (Eds.), Re-Awakening Languages: Theory and Practice in the Revitalisation of Australia’s Indigenous Languages (pp. 311–323). Sydney University Press.Lowe, K., Harrison, N., Burgess, C., & Vass, G. (2019). A systematic review of recent research on the importance of cultural programs in schools, school and community engagement and school leadership in Aboriginal and Torres Strait Islander education (p. 28). Social Ventures Australia (SVA).May, S. (2003). Maori-Medium Education in Aotearoa/New Zealand. In J. W. Tollefson & A. B. M. Tsui (Eds.), Medium of Instruction Policies. Routledge.Mayi Kuwayu. (2024). Exploring links between Aboriginal and Torres Strait Islander Language Use and Wellbeing (p. 4) [Research update]. Mayi Kuwayu, Yardhura Walani, First Languages Australia. https://mkstudy.com.au/wp-content/uploads/2024/10/Summary_MKFLA_language-wellbeing_240829.pdfMcBride, C. (2016). Biliteracy and bilingualism. In Children’s literacy development: A cross-cultural perspective on learning to read and write (1–2, pp. 171–187). Taylor & Francis Group. http://public.ebookcentral.proquest.com/choice/publicfullrecord.aspx?p=4218610Metila, R. A., Pradilla, L. A. S., & Williams, A. B. (2016). The challenge of implementing mother tongue education in linguistically diverse contexts: The case of the Philippines. The Asia-Pacific Education Researcher, 25(5–6), 781–789. https://doi.org/10.1007/s40299-016-0310-5Metila, R. A., Pradilla, L. A. S., & Williams, A. B. (2017). Investigating best practice in Mother Tongue-Based Multilingual Education (MTB-MLE) in the Philippines, Phase 3 progress report: Strategies of exemplar schools (p. 45) [Report prepared for Australian Department of Foreign Affairs and Trade and Philippine Department of Education]. Assessment, Curriculum and Technology Research Centre (ACTRC). https://actrc.files.wordpress.com/2018/10/09-17-2018-mtb-mle-report-phase-3-v5.pdfMinistry of Education. (2023, October). Māori language in schooling. Education Counts; Ministry of Education. https://www.educationcounts.govt.nz/statistics/maori-language-in-schoolingNational Statistics Office. (2021a). National Population and Housing Census 2021, Table 1: Population by caste/ethnic-groups and sex [Dataset]. https://censusnepal.cbs.gov.np/results/downloads/caste-ethnicityNational Statistics Office. (2021b). National Population and Housing Census 2021, Table 2: Population by mother tongue and sex [Dataset]. https://censusnepal.cbs.gov.np/results/downloads/caste-ethnicityNepal Education Cluster. (2020). COVID-19 education cluster contingency plan, 2020 (p. 24). Nepal Education Cluster. https://www.doe.gov.np/assets/uploads/files/54ba4942574885a514869a72a6b456cd.pdfNSW Government. (2017). Aboriginal Languages Act 2017. New South Wales (NSW) Government.Ober, R. (2009). Both- ways: Learning from yesterday, celebrating today, strengthening tomorrow. The Australian Journal of Indigenous Education, 38 Supplement, 34–39. https://doi.org/10.1375/S1326011100000806Ocampo, D. S. (2017, March 2). Mother Tongue-Based Multilingual Education (MTB-MLE) in the Philippines. https://au.eventscloud.com/file_uploads/806b6ab12b0ebe095fa59e1d66b0cadf_Dina_ForARNECwthdinasrevisions02-03-2017finalfromkeynote.pdfPhyak, P. (2016). For our Cho:tlung: Decolonizing language ideologies and (re)imagining multilingual education policies and practices Nepal [Unpublished PhD Thesis, University of Hawaii at Manoa]. http://hdl.handle.net/10125/51616Phyak, P., & Ojha, L. P. (2019). Language education policy and inequalities of multilingualism in Nepal: Ideologies, histories and updates. In A. Kirkpatrick & A. Liddicoat (Eds.), The Routledge International Handbook of Language Education Policy in Asia (1st ed., pp. 341–354). Routledge. https://doi.org/10.4324/9781315666235Pouezevara, S. (2021, April 28). Reading achievement in the Philippines: Does language complexity matter? Comparative and International Education Society Conference 2021. https://ierc-publicfiles.s3.amazonaws.com/public/resources/CIES%202021%20Language%20Complexity%20Study%20PRINTOUT.pdfRTI International. (2014). Nepal Early Grade Reading Assessment (EGRA) study [Report prepared for the United States Agency for International Development]. RTI International.Sah, P. K., & Li, G. (2018). English Medium Instruction (EMI) as Linguistic Capital in Nepal: Promises and Realities. International Multilingual Research Journal, 12(2), 109–123. https://doi.org/10.1080/19313152.2017.1401448Skutnabb‐Kangas, T., & McCarty, T. L. (2008). Key concepts in bilingual education: Ideological, historical, epistemological, and empirical foundations. In N. H. Hornberger (Ed.), Encyclopaedia of Language and Education (pp. 1466–1482). Springer. https://doi.org/10.1007/978-0-387-30424-3_112Taff, A., Chee, M., Hall, J., Hall, M. Y. D., Martin, K. N., & Johnston, A. (2018). Indigenous language use impacts wellness. In K. L. Rehg & L. Campbell (Eds.), The Oxford Handbook of Endangered Languages (pp. 861–884). Oxford University Press. https://doi.org/10.1093/oxfordhb/9780190610029.013.41Thomas, W. P., & Collier, V. P. (2002). A national study of school effectiveness for language minority students’ long-term academic achievement. Center for Research on Education, Diversity and Excellence.Tocker, K. (2015). The origins of Kura Kaupapa Māori. New Zealand Journal of Educational Studies, 50(1), 23–38. https://doi.org/10.1007/s40841-015-0006-zUnited Nations. (2007). United Nations Declaration on the Rights of Indigenous Peoples (UNDRIP). https://www.un.org/development/desa/indigenouspeoples/declaration-on-the-rights-of-indigenous-peoples.htmlWignell, P. (Ed.). (1999). Double Power: English Literacy and Indigenous Education. Language Australia.World Education. (2017). Medium of instruction: Improving early grade learning outcomes through the use of mother tongue (Sangai Sikaun Sangai Badhaun (Learning & Growing Together) Project Technical Brief Series 3; p. 8). World Education. http://3vvxza37b4sa2ci1ug2o2qwg-wpengine.netdna-ssl.com/wp-content/uploads/2017/10/SSSB-Medium-of-Instruction-Brief.pdfAuthor’s Bio: Naomi Fillmore is an applied linguist and an education specialist in the School of Languages and Cultures at the University of Queensland, Australia. Her research critically examines the intersections of language with education policy, pedagogy, and assessment in multilingual contexts, with a particular focus on Australia and Nepal. She has worked as a teacher, researcher, manager, and advisor in Australia, South and South East Asia, and South America.;Network & Infrastructure
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