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5. Raising quality through learning and teaching.

Guiding principles

• Provision which supports migrant and refugee settlement, and aids inclusion and full participation in Scottish society and the economy
• Provision which recognises and values the cultures of learners and the contribution that New Scots make to society and the economy
• Provision which supports and encourages routes into further learning and/or employment
• Provision which is high quality, easily accessible, cost-effective and uses best practice in the teaching and learning of languages
• Provision which reflects wider national literacies targets and promotes attainment and personal and social achievement

Background

The ESOL report noted that the majority of ESOL learners, in all sectors, were attending general English courses for less than 15 hours per week. ³⁷ Around 15 per cent of ESOL classes were in the form of ESOL literacies provision, of which 60 per cent were delivered in a community learning setting and the remaining 40 per cent in FE colleges. ³⁸ Of the 814 classes provided in Scotland, in those centres that responded to the survey, only 88 were work related. ³⁹ Around another 14 per cent of classes were for the express purpose of preparing learners for further study. ⁴⁰ESOL classes in community learning and development settings were more likely to be 2-4 hours contact time per week but with a higher tutor-student ratio than in FE colleges. ⁴¹ These classes tend to be, by and large, general English classes as a stepping stone to other ESOL courses at colleges. ⁴²FE colleges deliver the bulk of ESOL provision in Scotland and courses range from beginner level to advanced. ⁴³ They have also developed the bulk of ESOL combined with vocational subject courses. ⁴⁴ Most colleges continue to offer opportunities for ESOL qualifications, with increasing numbers using the SQA's ESOL National Qualifications ( NQ) units. ⁴⁵ Of those learners sampled for the ESOL report, 95 and 93 per cent could read and write in their first language respectively. ⁴⁶ 66 per cent of those surveyed had completed education at high school level or above. ⁴⁷

Less than 15 per cent of the teaching staff surveyed in the ESOL report had no teaching qualification. ⁴⁸ However, a further 14 per cent did not have an EFL (English as a Foreign Language) or ESL (English as a Second Language) teaching qualification. ⁴⁹ Both the ESOL report and the recommendations of the ESOL Steering and Working Groups suggested that ESOL practitioners, in general, needed to be better acquainted with the Scottish qualifications landscape and with wider educational priorities. The report and recommendations of the ESOL Steering and Working Groups also supported better staff induction programmes for ESOL staff, the development of a qualification for volunteers working with ESOL learners and a CPD award for experienced and qualified ESOL teachers.

Some professional development programmes (both accredited and informal) are available at a local level. Amongst these are the unaccredited training courses for volunteers developed by both Stevenson College Edinburgh and the Glasgow ESOL Forum. The Professional Development Award in ESOL Literacies - developed by Glasgow ESOL Forum, in conjunction with Learning Connections- for experienced ESOL teachers wishing to teach ESOL literacies has recently been accredited by SQA. ⁵⁰ In light of recent Home Office requirements for citizenship and English language for naturalisation and residency, the Home Office have funded a Scottish partnership, of the SQA along with a number of FE colleges and the Glasgow ESOL Forum, to develop and pilot ESOL with citizenship materials and training for ESOL staff to deliver these. The SQA are also reviewing and augmenting their NQESOL portfolio.

Most ESOL provision is subject to rigorous quality assurance systems. All FE colleges, and local authority CLD (including ALN) are subject to reviews by HM Inspectorate of Education ( HMIE). They use HMIE frameworks for the inspection and review of FE and CLD for the purposes of self-evaluation. ⁵¹ Providers of ALN across all sectors are encouraged to use Literacies in the Community ( LIC) for quality assuring provision for ESOL learners who also have literacies needs. In addition, a number of FE colleges are subject to review as part of their accreditation under the British Council's English in Britain Accreditation Scheme (Ei BAS). ⁵² All SQA approved centres also have in place internal verification systems for ensuring quality and consistency in assessment. They are also subject to centralised SQA moderation procedures and can request moderation visits from SQA to ensure assessment systems are being correctly applied.

Concurrent discrete developments in all of the areas considered in this section are catalogued, alongside the relevant recommendations of both the ESOL report and the ESOL Steering and Working Groups, in Annex A.

National Union of Students ( NUS) Scotland
Stakeholder Platform

NUS Scotland believes that the development of an ESOL strategy for Scotland is essential in ensuring that the needs of an increasing number of individuals undertaking formal ESOL learning are met. It is important that a strategy will reflect the views of all stakeholders in the sector and we support the move to consult on this issue.

NUS Scotland believes that the needs of all students should be met and those completing ESOL courses should be no exception. The current ESOL provision in Scotland no longer reflects the demographics of those wishing to undertake study and in some cases is not meeting the needs of individuals, communities and wider society. There are also many examples of good practice in ESOL provision in Scotland and we support this consultation in bringing those examples together.

5.1 Teaching, learning and assessment

This strategy recognises the need for an Adult ESOL curriculum for Scotland, to be developed alongside the existing adult literacies curriculum framework. We recommend that a national ESOL curriculum group be set up to consider the framework for a Scottish ESOL curriculum. This group will also consider the issues of assessment and attainment within the context of recent SQA developments and other methodologies for measuring student progress. Whilst measures exist for measuring attainment in the shape of formative assessments, there is also a need to recognise the value of less measurable learner achievements like greater confidence to participate in classes, everyday life and the community, particularly amongst vulnerable learners. SQA, in collaboration with the Scottish Executive and the ESOL Strategy Group, is currently exploring strategies for measuring, accrediting and recording learner achievement through learning plans. The ESOL curriculum group will be encouraged to consider ways in which an Adult ESOL curriculum could provide learners with the relevant language skills to enter the labour market, to access further study and participate more fully in their local communities and Scottish society. It is also imperative that developments in teaching, learning and assessment in ESOL consider and apply best practice from language teaching, learning and testing.

Learning and teaching:

Effective learning and teaching lies at the heart of a national ESOL strategy. ESOL learning and teaching should:

• Be based on current thinking and best practice for teaching adult learners, and should incorporate the principles of reflective practice;
• Incorporate best practice in language learning methodology;
• Incorporate broader best practice in provision that addresses the needs of ESOL and literacies learners; and
• Promote the integration and mainstreaming of ESOL into wider FE and CLD provision.

The Scottish Executive is funding the development of a 'Best Practice in ESOL' framework. This should be used as a self-evaluation tool for all providers, and will provide a platform for disseminating existing good practice to all ESOL providers.

The Best Practice framework will be linked to the HMIE quality framework for further education, to the framework for Quality Assurance in CLD, How Good is Our Community Learning and Development, and to Literacies in the Community. It will also take into account the FE National Training Organisation's guidance for ESOL teaching (issued in 2003). ⁵³

Coherent learning and teaching, and progression, are based on a sound curricular framework; and courses must take full account of community and employer needs. Thus employers need to be engaged so that work-based ESOL can be developed and delivered in line with the Scottish Executive's Employability Action Plan (as set out in sections 4.2 and 6.3 ).

Given the preceding recommendation to set up an ESOL curriculum group - to provide underpinning support and direction for ESOL programmes in college, community, and work-based settings - some of what follows are provisional rather than final guidelines.

Assessment:

Diagnostic and formative assessment

Assessment is a valuable tool in placing learners appropriately, in planning learning and monitoring progress. Effective initial diagnostic assessment tools should be used with all ESOL learners. This diagnosis should include an assessment of whether ESOL learners have literacy learning needs. Specific assessment tools should be developed and used for this purpose. On-going review and feedback on formative assessment should be viewed as a learning tool, and should be linked, where appropriate, to individual learning plans. Assessment should reflect equal opportunities practice and should make provision when needed, for additional support needs, for example, dyslexia, study skills. In the case of the latter, the Scottish Executive's guide to public bodies on supporting students with additional needs in further education, Partnership Matters, should be used to support this. ⁵⁴

Summative assessment

Summative assessment provides evidence of attainment, promotes articulation to mainstream programmes, and improves access to employment opportunities. Wherever possible, ESOL learners should be encouraged to work towards the most appropriate high-quality accredited ESOL qualifications. Key stakeholders, in particular, employers, Colleges, HEIs and CLD partnerships should be made aware of ESOL accreditation which is linked to the SCQF. This will help promote progression and inclusion.

Measuring 'distance travelled'

Not all learners wish to work towards formal accreditation. Providers should therefore capture qualitative achievement for ESOL learners. Individual learning plans could be used as one method of capturing this.

However, we recognise that these may not be appropriate for all ESOL learners. Good practice in Recognition of Prior Learning ( RPL), where appropriate, will be considered by the ESOL curriculum group in due course.

The Scottish Centre for Information on Language Teaching and Research (Scottish CILT)
Stakeholder Platform

The Scottish Centre for Information on Language Teaching and Research (Scottish CILT) was set up in 1991 to provide information about language learning for students and teachers, opinion formers and policy makers; to promote the learning and use of all languages of relevance to Scotland; and to conduct research in support of the work of language teachers and other language professionals. We welcome the decision to develop an adult ESOL strategy for Scotland, to ensure that those for whom English is an additional language have the opportunity to acquire the linguistic competences that will enable them to participate in the Scottish labour market and more generally in Scottish society.

We support the view that an adult ESOL curriculum should be developed, drawing on what is known about best practice with adult learners generally and more specifically, on what is known about adult language and literacies learners. There is a very substantial international body of research in this field. Although it is essential that the curriculum draw on the best of Scottish thinking and practice, it will also be important to ensure that there are opportunities to include insights from this wider perspective.

One trend in current thinking which we regard as particularly important in this context is the recognition that the language skills of bi- or plurilingual people should be viewed holistically rather than as a number of separate, unconnected language competences. This view has been developed by researchers working for the Council of Europe Language Policy Division ⁵⁵ and is reflected in recent policy documents on language learning from the European Union. ⁵⁶ A consequence of this position is that diagnostic and formative assessment should draw on the Recognition of Prior Learning ( RPL) not only in relation to English but in relation to other languages too. The use of the European Language Portfolio ( ELP) could be of particular value in this context and we recommend that the curriculum group consider the adult version of the portfolio developed by CILT - the National Centre for Languages. ⁵⁷

More generally, we believe that the need for 'joined-up' policy on ESOL should extend beyond the involvement of the various local and national bodies listed in the consultation document to include those concerned with the promotion of a multilingual Scotland. The need for co-ordinated strategy across those providing for English as a 'mother tongue', for adult literacies, for ESOL and for the learning of other languages, including community languages, is set out in Joseph Lo Bianco's Language and Literacy Policy forScotland. ⁵⁸ He argues that such co-ordination is essential to ensure educational excellence, global presence, Scotland's heritage past and future, cultural vitality, substantive citizenship, social inclusion and economic development. An ESOL strategy which is developed within this wider context will be well placed to deliver these goals.

Supporting and delivering a curriculum for Scottish ESOL

The ESOL curriculum group should be constituted of ESOL specialists, language and literacy specialists, SFEU, HMIE, Learning Connections ( CLD and ALN), SQA, SEn and SE- ETLLD and the Scottish Executive Education Department ( SEED) (subject to availability). In its deliberations, it should link to developments in Schools EAL. The group should seek to develop:

• A coherent framework for ESOL teaching, learning and assessment which equips learners with the skills needed to sustain progress (and options in their progression pathways ⁵⁹ - see section on progression) and for providing the potential for articulation from EAL programmes. This framework should be fully linked to SCQF and to SQA qualifications and should take account of policy developments in citizenship and employability;
• A curriculum which reflects best practice in wider language teaching, learning and assessment and literacy learning needs;
• A curriculum which considers the differing needs of learners and reflects this in measurement of achievement;
• A curriculum which acknowledges the benefits of, and is sensitive to, cultural differences;
• A curriculum which takes account of the various quality assurance systems, particularly the various HMIE quality frameworks; and
• The staff development and other resource needs of the roll out of a Scottish ESOL curriculum.

As the work of the ESOL curriculum group develops, there will be a need for training and dissemination. The curriculum, and associated training, should focus on meeting the specific needs of learners who want to settle and make a life in the UK. As a National Curriculum for ESOL emerges, SQA and the Scottish Executive should develop related professional awards for ESOL practitioners.

5.2 Professional development

This section relates to professional development for ESOL practitioners. The professional development of guidance and support staff working with ESOL learners is discussed in section 6.2. The ESOL report and the ESOL Steering and Working Groups recommended the development of a qualification for volunteers and CPD awards for ESOL teaching staff. This strategy agrees with these recommendations and suggests that a structured professional development pathway needs to be mapped for ESOL staff, within broader developments in CPD for lecturers and tutors within FE, and for CLD and ALN staff. Thus, this section begins by briefly outlining broader CPD frameworks within these areas.

The development of an ESOLCPD structure should take account of developments at a UK level and Lifelong Learning UK - the sector skills council for lifelong learning formed out of the FE national training organisation, the NTO for community based learning and development ( PAULO) and other former NTOs from the LLL sectors - can assist in ensuring that CPD is cross- sectoral and focused on meeting learners' needs.

Further Education

The occupational standards for FE lecturers are overseen for Scottish Ministers by the Further Education Professional Development Forum and a range of initial teacher training units and professional development awards ( PDAs), which can be delivered in the 37 FE colleges approved to do so, now exist. In addition, the FEPDF is responsible for overseeing the delivery of the Teaching Qualification in Further Education, delivered in the 3 PDF-approved teacher education institutions at the Universities of Aberdeen, Dundee and Stirling. The Scottish Executive's Enterprise, Transport and Lifelong Learning Department held a consultation on the review of occupational standards of FE lecturers in 2003 and on whether staff in Scotland's colleges needed a professional body in 2004. ⁶⁰FENTO published guidance for ESOL teachers in 2003. ⁶¹

Community Learning and Development and Adult Literacy and Numeracy

In February 2003, in response to the recommendations of the Community Education Training Review, the Scottish Executive outlined plans for restructuring and improving training for CLD practitioners. ⁶² A short life task group has reported to Ministers on the issue of establishing a professional body for the CLD sector. All CLD practitioners' training and qualifications continue to be overseen by Community Education Validation and Endorsement (CeVe). ⁶³ A consortium of HE, FE and community-based providers has been established to further develop work-based and part-time routes to CLD training and qualification, and has received funding from the Scottish Funding Councils for FE and HE. A training qualification framework is currently being developed for Adult Literacies practitioners.

Scottish Enterprise and Highlands and Islands Enterprise
Joint Stakeholder Platform

Scottish Enterprise and Highlands and Islands Enterprise welcome this consultation on an Adult ESOL Strategy for Scotland.

If Scotland is to fulfil its aim of being a vibrant, confident, growing and inclusive economy, then the ability to participate successfully at work and in society is vital. People should have the skills to participate and those who have a first language other than English should be able to access good quality English language provision to help develop the appropriate skills. The provision also needs to be suitable. People need access to diverse ranges of quality provision, supplied in many different places such as colleges, in community learning settings, union education services, at work, at home

Scottish Enterprise and Highlands and Islands Enterprise supports the principles of high quality provision which is easily accessible and which makes full use of best practice in the teaching and learning of language. There is a lot of ESOL provision available through the public and private sector. The double challenge is to make sure people know about the provision and have good advice to help access, and to make sure people can have confidence that what they do access is of good quality and uses best practice. Existing provision is subject to quality assurance, any expansion of provision must make sure quality is not diluted, rather enhanced.

Scottish Enterprise and Highlands and Islands Enterprise are committed to work in partnership with others to achieve economic prosperity for Scotland and all its citizens. We are also committed to making sure the potential synergy between different strategies and approaches are fully considered. We therefore welcome the initial proposals to consider the Scottish Executive's Employability Framework as we believe it will have a key role in informing the consultation further on the appropriateness of local and national structures. It should also be a significant consideration in the development of English for vocational purposes ( EVP).

Recommendations

We propose that a short-life working group be set up to:

• Map all existing ESOL and ESOL with literacies qualifications onto a CPD pathway for ESOL practitioners;
• Place these within wider FE, CLD and ALN staff development frameworks and consider where they might be placed within SCQF (at the same time taking cognisance of the sector skills council for lifelong learning, Lifelong Learning UK);
• Identify gaps in existing ESOL and ESOL with literacies CPD qualifications and the need for additional professional development units or PDAs (including one to increase the knowledge of the wider education and training landscape of Scotland and an equivalent of the post- CELTA or Trinity qualifications); and
• Identify CPD needs of teaching, learning support, guidance staff and administrative support staff (see section 6.2).

This group would work closely with both CeVe and the FEPDF. In addition to ESOL and ESOL with literacies experts, we would anticipate the following bodies being represented: Learning Connections ( ALN and CLD interests); HMIE; Learning Link Scotland; and SQA. A pathway document outlining professional development routes and levels of qualifications would then be passed to the National ESOL Panel to be held on their website.

We aspire to a fully professional workforce with recognised career structures. ESOL practitioners need to show knowledge, technical competence, and expertise at a level consistent with effective programme delivery. We recommend that each teacher should have a relevant specialist qualification in the teaching of ESOL. Centres, for their part, should also ensure that ESOL staff are included in mainstream activities and staff development programmes (including inductions).

Supporting volunteers

Volunteer tutors make a significant contribution to ESOL provision in Scotland. Many volunteers are highly trained and experienced. For those who lack formal training or are new to this field of teaching, a PDA in initial ESOL training should be provided. The award should support the skills of volunteers in working one to one or with small groups of ESOL learners. The award should draw on best practice in language learning and ESOL and literacies learning. We hope that this would be used as a stepping-stone to the CELTA or equivalent.

Engaging practitioners in research

Small scale action research will help to promote a 'reflective practitioner' approach amongst ESOL professionals. The Scottish Executive, in partnership with key stakeholders, will fund small-scale action research projects in ESOL.

5.3 Quality assurance

Relevant HMIE quality frameworks should be used by all ESOL providers in FE, CLD and ALN. The FE sector should link all aspects of practice to the HMIE quality framework. Community based providers should use How good is our community learning and development ( HGIOCLD) and Literacies in the Community ( LIC) as further key quality assurance tools. The national strategy will monitor how all of these frameworks can be incorporated/better utilised in terms of adult ESOL. The 'Best Practice in ESOL' support document, although ESOL specific, will be tied to the relevant quality frameworks in FE, CLD and ALN. Qualitative and quantitative data will be gathered to assess the effectiveness of the strategy, i.e. how well ESOL providers are performing in relation to these national quality assurance frameworks.

5.4 Raising quality through learning and teaching: summary of recommendations

We recommend that:

1. The 'Best Practice in ESOL' support document be developed in line with How Good is Our Community Learning and Development and Literacies In the Community frameworks and the HMIE inspection framework for FE colleges;
2. An ESOL curriculum group be set up with the membership, role and remit as set out in this section;
3. Teaching, learning and assessment be conducted in line with best practice in wider language learning and literacies needs;
4. A short-life staff development working group be set up with membership, role and remit as set out in this section; and
5. The SQA and professional associations develop a PDA qualification for volunteers, with support from the Scottish Executive and Learning Connections.

Consultation questions

Q.7 Do you feel that there is a need to establish a clear professional development pathway for ESOL staff? Do you agree with proposals for an expert group to be set up to consider professional development for ESOL staff?

Q.8 What should be the function and principles of a Scottish ESOL curriculum framework?

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