I think separate chains for each country would work best. Now the reward pool is shared, and if some hypothetical language user base was 1/100 of that of English, the voterbase would be 100x smaller, there would be 100x less votes, and the rewards would be 10,000 times smaller on average and in total. Even so, I think you are right. Mixing all the languages just doesn't work, and prevents language-specific communities from forming.
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Separate chains might be a little bit too much decentralization. That would mean separate accounts and private keys. There wouldn't be a global Steem economy, instead it would be one big English speaking community and a lot of smaller ones.
Maybe better idea would be to adjust reward pool distribution among different languages, although I'm not sure how easy that would be.
What if the separate islands shared an underlying Economic Operating System
That might work!
would such islands achieve End Of Separation?