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Community Languages Online

Current practice and future directions of multilingual information on Victorian Government websites.

This report was produced for the Department for Victorian Communities by Vicnet, a division of the State Library of Victoria

State Library of Victoria

June 2007

Copyright State of Victoria 2007

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Executive Summary

Recommendations

Report

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Executive Summary

Language is the foundation of communication between people and is also part of their language heritage. For many, language has far-reaching emotive and cultural associations and values rooted in their literacy, historical, philosophical and educational heritage. For this reason the users' language should not be an obstacle to accessing the multilingual heritage available in cyberspace.(1)

1.1 About the project

This report details findings and recommendations from research into how multilingual web-based government information can be created and used in the best way for culturally and linguistically diverse (CALD) communities.

The project was commissioned by the Victorian Office of Multicultural Affairs (VOMA).(2) Research and subsequent developmental work was undertaken by Vicnet, a division of the State Library of Victoria.

1.1.1 Why consider a multilingual website?

The functionality and usefulness of Victorian government websites have increased significantly as a result of continuous improvement since the use of the web for government communication started almost ten years ago.

As the internet continues to provide a communication channel to the wider community, improvement of translated content on Victorian government websites is needed to ensure that online information is accessible for CALD communities. This is in line with wide-ranging Victorian Government policy that supports access to government information for all Victorians.

The initial vision for this project was to undertake developmental work on a Whole of Victorian Government (WoVG) multilingual website as part of the Victorian Government's Language Services Strategy.

Other online projects developed through the Language Services Strategy are the Health Translations and Justice Translations directories (3). These projects are based on a model where an English-speaking intermediary accesses information on behalf of non-English speakers (mediated access). In contrast, the focus of a one-stop WoVG multilingual website was envisaged as a resource that could be accessed in community languages without mediation (direct access).

Research into how CALD communities can best access government information online has broad relevance to many areas within government, particularly those concerned with communications, language services, diversity and community access.

1.1.2 Project objectives and scope

The project had two key objectives:

• to identify a potential model for a Whole of Victorian Government (WoVG) multilingual website to improve CALD communities' access to government information on the internet
• to analyse current practice and make recommendations for improved provision of multilingual web-based government information.

The project included research into how multilingual content is currently created for government websites. It also involved extensive consultation with CALD communities to gauge community perceptions and expectations for online information.

A further focus was to identify key technical requirements and best practice for tailoring online information for CALD communities. In addition, a proof of concept website was created to demonstrate the potential functionality of a WoVG online multilingual access point.

1.2 Overall findings

We found there is interest in, and acknowledgement of, the potential usefulness of a WoVG multilingual website. However, before such a site can be developed, important preliminary steps are necessary. There are two main reasons for this.

First, our research showed it is not yet common practice for people in CALD communities to seek out translated online government information. The current limited use of online translations by CALD communities is, in part, related to the difficulty of discovering and accessing translations.

Second, our research also revealed that the current format of most multilingual information online is not suitable for inclusion on a WoVG website. Without changes to the quality of online information, a WoVG website is premature.

Given this, we have identified five key steps that need to precede the development of a WoVG website. These form the basis of our project recommendations.

1. Support CALD communities to use the internet.
2. Develop standards and guidelines for the creation of multilingual content.
3. Support skills development for translators.
4. Introduce content management systems (4) that fully support relevant languages and their scripts.
5. Review progress towards improved support for the provision of multilingual online information.

1.3 How do CALD communities use the internet?

1.3.1 Overall internet use

Community leaders describe internet use among CALD communities as varied: internet use is affected by circumstances, perceptions and individual characteristics. Statistical data from the 2001 census (5) showed that overall uptake of the internet by Victorians who speak a language other than English at home is slightly lower than that of the English-speaking population. However, for some languages such as Chinese, Spanish and Serbian, uptake was proportionately higher. Regardless of the language spoken, the internet is mostly used by people between 15 and 55; this is similar to uptake in the wider population.

All community leaders we spoke to claimed that internet use will increase, and that perceptions of the internet are changing. For example, some CALD seniors are beginning to demonstrate interest in the internet and more people are acknowledging its potential as an information source. Some new arrivals have come to Australia with established skills and have expressed a need for public internet access.

A significant issue – raised in more than half of the community consultations – was that some groups within CALD communities experience significant barriers to internet training and access because of limited language skills, the prohibitive cost of home internet access, and difficulty accessing public internet services. These groups are most likely to be seniors, women, people on humanitarian visas (6) and people on low incomes.

1.3.2 Information needs

CALD communities consider access to information ‘in language' as important. Opinion about what should be translated varied according to the topic and community. While respondents specified a broad range of topics that were important to them, topics most frequently mentioned were housing, education, settlement, concessions and legal aid.

Overall, CALD communities prefer to receive information in a person-to-person situation – this is also the case for the English-speaking community. However, some community leaders and services providers are directing people to online information.

Ethnic radio and newspapers were rated highly as information sources. Because literacy was identified as an important consideration for members of some CALD communities, written information may sometimes need to be supplemented in other formats, such as audio.

1.3.3 Use of the internet to find government information

Those most likely to seek government information online are community workers who find it a useful way to access information on behalf of clients. In most cases, however, translated material within websites is difficult to find. Also, few people within CALD communities were aware of existing online translated information about government services. In general, people do not expect to find translated government information online.

Recent demographic profiling of users of Victorian Government English websites suggests there is some interest in accessing information in languages other than English. Although preliminary, this data represents the perspective of people who are bilingual and access government information online, and indicates a potential demand for translated information.

1.4 What is happening with translated online government information?

Multilingual information can be located on Victorian government websites in two ways:

• Direct access is where an individual can locate information independently because all text and links to information are in the required language.
• Mediated access is where translated information is contained within an English language website, usually in PDF format (7), and a person with sufficient English literacy is required to navigate information on behalf of a community member.

We found more than 60 instances of translated content on Victorian Government websites. In most cases, the navigation links and signposts are in English, so few people can directly access information in their language. In some cases, the design of websites is optimised for mediation (for example, The Health Translations and Justice Translations directories). This means a practitioner or community worker can locate the information in the required language for a community member after verifying appropriateness by checking the English version of the text. (8)

1.4.1 Format of translated content

The technical approach used by a web editor to include multilingual content on a website influences how accessible that content will be and affects the quality of the end-user experience.

The most accessible means of incorporating text into a website for direct access is through use of HTML (Hypertext Mark-up Language). (9) This allows information to be easily read on a computer screen. When multilingual text is not in HTML format, it is often embedded in an image – either on the web page or within a PDF file. Although there are now some good examples of government websites with multilingual HTML components, most translated information on government websites is contained within PDF files.

A shift from PDF files toward an increased use of HTML with accessible in-language navigation will greatly improve the usability, accessibility and discoverability (10) of online translated information. This will also make it easier for individual members of CALD communities to directly access that information.

Limitations of PDF files

The use of images within PDF files to display text is not accessible for people with visual impairment, and is disallowed by the current Victorian Government web standards. However, no current government guidelines support the creation of accessible PDF files.

In addition, PDF files are usually meant for print (not screen). This means they are less user-friendly than HTML: time consuming to locate and print; difficult to read onscreen.

Our technical scan also showed that most PDF files are buried within a website without navigational signposts to locate them – undermining any usefulness they might have. As well, most PDF files are not tagged correctly, which means they cannot be located through a keyword search.

Best use of PDF files

The most effective use of PDF files is for material that will be printed, and when navigational sign posts easily enable a user to find the information. It is possible to construct PDF files in an accessible format, and to adjust the file size and screen resolution to improve the end-user experience.

1.4.2 Need for guidelines

Currently, the Victorian Government has no guidelines to support government officers to create non-English web content.

We found a clear need for guidelines and technical advice on how to create accessible and usercentric multilingual components for Victorian Government websites. (For example, PDF files that are constructed in an accessible format with clear navigational signposts and where file size and screen resolution can be adjusted to improve the end-user experience.) This includes publishing in multilingual HTML, and optimising PDF files to meet accessibility requirements.

During interviews, government officers often asked for advice to help them create multilingual content. For example, the person writing the content needs to be aware of the technical requirements for creating translations suitable for HTML format. The person managing the web architecture needs to be able to deal with web internationalisation (11) and, if not working directly with a program area, will also need to have an understanding of cross-cultural communication. Further, those involved in making purchasing decisions for content management systems need to be aware of the potential requirements to support languages other than English. Guidelines would also meet this need and foster better consultation and communication.

1.4.3 Language service providers

Victorian Government departments and agencies use a number of language service providers to translate information for government websites. The way that text is translated and the format it is created in will influence the end result on a web browser.

However, language service providers vary in their capacity to use appropriate accessible formats. In many cases, current practice is to provide text in PDF format. In some cases, language service providers cannot supply translated text in Word document format even though this is more suitable for translations that are to be incorporated into a website as HTML.

Translators (and typesetters) need support to develop their skills so they can supply text in the appropriate format for HTML. Without skill development, the trend to contain translated text in PDF files and images will continue.

1.4.4 Content management systems

The capacity of a content management system (CMS) will determine whether or not multilingual information can be included in an English-language website.

Without functionality to handle complex scripts and languages, or those written from right to left (such as Arabic and Persian), the formats in which information can be published will be limited.

Government officers in web units said they would benefit from advice on multilingual functionality when evaluating new content management systems. Future purchasing decisions for any CMS will determine the extent and quality of multilingual information that can be included in Victorian Government websites (at both whole of Government and departmental levels).

1.5 Opportunities for improvement

1.5.1 Multilingual information online for CALD communities

Because people in CALD communities do not expect to find multilingual government information online, and few sites with translated content are known of, the usefulness of web-based information remains untested. As there continues to be more demand for translated information, it is possible that the web can be used to expand access to information about popular topics such as health, housing, settlement, concessions and legal aid.

A practical use of the internet (commonly identified by community workers, particularly in regional areas), is as a repository where a worker can locate information on behalf of a client or customer through mediated access. If more information can be located through direct access in community languages, the mediation role of community workers or family members can include showing people websites where they can independently browse for information.

Opportunities also exist to provide access to information in audio or audio/visual formats. As ethnic radio stations such as SBS and Radio Australia continue to make downloadable audio available on their websites, CALD community's familiarity with this format will increase.

A desirable measure of the usefulness of a site is that it is good enough to be recommended by word of mouth.

1.5.2 Improving the quality of online translated information

All the requirements to create usable, accessible and discoverable translated online content are attainable. The relevant techniques, software and content management systems exist, and some new Victorian Government websites exemplify this.

The quality and usability of Victorian Government websites have improved significantly in recent years. However, the opportunity exists to improve the quality of multilingual web-based government information by raising awareness of technical solutions among government departments and agencies, and by developing applicable WoVG guidelines and standards such as:

• guidelines for creating and translating content (for example, guidelines on preparing online documents for translation or for briefing translation companies)
• guidelines for technical implementation (for example, tools and tests to evaluate multilingual support in content management systems; web development standards and techniques for creating online content in community languages).

As recommendation 2 makes clear, those guidelines also need to be promoted if they are to support change.

They will also need to be supported by relevant training and will need to be promoted to government officers involved in authoring, planning, designing and implementing multilingual online information.

1.6 Potential for a WoVG multilingual website

A WoVG website that provides a multilingual online government access point for CALD communities is a potentially practical communication mechanism that could:

• increase the distribution of translated information
• provide greater exposure to translated information through aggregation in a single site
• offer translated links and signposts to ensure the site could be accessed directly by individuals in community languages
• provide a useful directory.

In particular, community workers and community leaders saw the potential of such a site that could be easily accessed on behalf of a community member.

A well promoted single multilingual website will address the current issue of limited community awareness of translated government information online. It would also address the current lack of means for CALD communities to easily identify the breadth of information that is available, an issue that will become significant as the amount of translated information on Victorian government websites continues to increase.

An online proof of concept demonstration site has been created as an adjunct to this report to demonstrate the functionality of a potential WoVG website (see link in Chapter 6).

Before a WoVG website is developed, the significant work outlined in recommendations 1 to 4 needs to be well underway. Without this groundwork, development of a WoVG website would be resource intensive and highly complex. As more translated online information is usable, accessible and discoverable by CALD communities, the foundation for a successful WoVG website will be established.

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Recommendations

Recommendation 1: Support CALD communities to use the internet

That more opportunities be provided for CALD communities to access the internet and gain the skills to use it.

This can be achieved by allocating resources for:

A detailed needs analysis that identifies appropriate solutions to the difficulties experienced by CALD communities in accessing both internet training and publicly-available internet computers

Development of internet training programs that respond to the outcomes from such a needs analysis, and enhance CALD communities' skills in accessing online information

Increased public internet access points that respond to the outcomes from the needs analysis, and build CALD communities' capacity to access online information.

Recommendation 2: Develop standards and guidelines for the creation of multilingual content

2.1 Guidelines for creating and translating content

That the key existing WoVG communication guide Improving the Use of Translating and Interpreting Services: A Guide to Victorian Government Policy and Procedures (VOMA, 2003) be updated to include information on preparing translations for online use. The following information should be included:

• how to brief language service providers on web-based translations
• how to prepare content for translation that is suitable for publishing online
• consultation and communication between web-development departments and other staff.

Agency-specific communication guides should be updated as appropriate.

2.2 Guidelines for technical implementation

That relevant Victorian Government web standards are extended so that multilingual websites meet international best practice – that is, are accessible, discoverable and useable. This will involve:

• updating existing Victorian Government web standards as described in 5.3.2 of this report
• developing a new standard covering languages other than English that addresses web internationalisation issues (as detailed in the technical appendix to this report)
• developing guidelines for PDF accessibility to supplement the Victorian Government's web standard on accessibility.

2.3 Promotion of guidelines and training

That a coordinated program of professional development is provided for Victorian government staff involved in developing multilingual online content. Activities could include:

• targeted seminars
• specialised training sessions
• online support groups
• discussions within appropriate interdepartmental forums.

Recommendation 3: Support skills development for translators

That translators be supported to improve their technical knowledge and their capacity to provide appropriate translations for online use. This can be achieved through collaborative activities between government, peak bodies (e.g. NAATI and AUSIT) and the language services industry. Activities could include:

• training for translators to update relevant IT skills
• guidelines, toolkits and checklists for language service providers
• specialised professional networks.

Recommendation 4: Introduce content management systems that fully support relevant languages and their scripts

That content management systems for Victorian Government websites have the capacity to support multilingual content.

4.1 To achieve this at a Whole of Victorian Government level:

• The Victorian Government should seek specialised technical advice to ensure that any Whole of Victorian Government web content management platform provides adequate support for multilingual content.

4.2 To achieve this at a departmental level:

• Content management systems that do not support provision of multilingual content should acquire this function either through a migration strategy or future upgrades.
• Departmental information architecture plans and content development plans should be amended to consider the requirements of languages other than English.

Recommendation 5: Review progress towards improved support for provision of multilingual online information

That a review is undertaken by mid-2008 on progress made under recommendations 1 to 4 of this report.

If sufficient progress has been made, that a strategy is prepared for the development of a multilingual online government website, in line with the model recommended in Section 6 of this report.

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Report

The report is available in pdf format (1,859kb). (This document requires the use of Adobe Acrobat Reader). You can also convert PDF documents into alternative formats.

Enquiries should be addressed to:

eServices Unit
Citizen Access and Transformation Divison
Department of Planning and Community Development
State Government of Victoria
PO Box 2392
Melbourne, Victoria, 3001
Email: administration@egov.vic.gov.au

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Footnotes

1. UNESCO (2003), Cultural and Linguistic Diversity in the Information Society, www.portal.unesco.org/ci/en

2.As of May 2007, the Victorian Office of Multicultural Affairs has been absorbed within the Victorian Multicultural Commission.

3. Both websites are directories and do not contain any content of their own.

4. A content management system (CMS) is the software and infrastructure to manage and edit the content of a website

5. Australian Bureau of Statistics, Census of Population and Housing, 2001

6. Humanitarian Visa entrants are those who meet the definition of refugee under the United Nations Convention Relating to the Status of Refugee. They are likely to be in relatively disadvantaged social and economic circumstances upon arrival in Australia.

7. Portable Document Format. A PDF is a type of document file designed to faithfully reproduce a printed version of the document. PDF files are commonly used as an intermediate file that can be sent to commercial printers for printing.

8. 68.4% of websites with translated content require mediated access, however, only 3.5% are optimised for mediation.

9. The HTML is interpreted and displayed on the computer screen by web browsers.

10. Discoverability is the effective ability of a website to connect users to the information and resources it holds. For example, a website is discoverable if it can be located by a search engine through a keyword search.

11. Web internationalisation is the design and development of a web service, web site or document content that enables easy localisation for target audiences that vary in culture, region, or language.

Added: 19 September 2007, Page Views: 2661, Rating: 0.0
Last Updated: 31 March 2008
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