- 22 - 77. The alternatives referred to in this paragraph – “opportunities for being taught the minority language or for receiving instruction in this language” – are not mutually exclusive. Even though Article 14, paragraph 2, imposes no obligation upon States to do both, its wording does not prevent the States Parties from implementing the teaching of the minority language as well as the instruction in the minority language. Bilingual instruction may be one of the means of achieving the objective of this provision. The obligation arising from this paragraph could be extended to pre-school education. Paragraph 3 78. The opportunities for being taught the minority language or for receiving instruction in this language are without prejudice to the learning of the official language or the teaching in this language. Indeed, knowledge of the official language is a factor of social cohesion and integration. 79. It is for States where there is more than one official language to settle the particular questions which the implementation of this provision shall entail. Article 15 80. This article requires Parties to create the conditions necessary for the effective participation of persons belonging to national minorities in cultural, social and economic life and in public affairs, in particular those affecting them. It aims above all to encourage real equality between persons belonging to national minorities and those forming part of the majority. In order to create the necessary conditions for such participation by persons belonging to national minorities, Parties could promote – in the framework of their constitutional systems – inter alia the following measures: – consultation with these persons, by means of appropriate procedures and, in particular, through their representative institutions, when Parties are contemplating legislation or administrative measures likely to affect them directly; – involving these persons in the preparation, implementation and assessment of national and regional development plans and programmes likely to affect them directly; – undertaking studies, in conjunction with these persons, to assess the possible impact on them of projected development activities; – effective participation of persons belonging to national minorities in the decision-making processes and elected bodies both at national and local levels; – decentralised or local forms of government. Article 16 81. The purpose of this article is to protect against measures which change the proportion of the population in areas inhabited by persons belonging to national minorities and are aimed at restricting the rights and freedoms which flow from the present framework Convention.