The Scottish Government

« Previous | Contents |

Listen

The Scottish Executive's Enterprise, Transport and Lifelong Learning Department ( ETLLD) have commissioned the Centre for Research in Lifelong Learning ( CRLL) based at Glasgow Caledonian University to undertake an evaluation of Individual Learning Accounts Scotland ( ILA Scotland). This evaluation consists of interviews with learning providers and intermediary agencies associated with the ILA Scotland Scheme. The results reported here are key findings from research carried out by CRLL between October 2005 and September 2006 examining the views of learning providers associated with the scheme overall. This part of the evaluation constitutes Phase One of the Learning Providers Study and acts as a baseline through which the impact of the changes introduced to the ILA Scotland Scheme during 2006 can be compared. Phase Two of the Learning Providers Study will focus on the impact of these changes and those findings will be incorporated into a final report on Learning Providers which is due to be submitted to the Executive later in 2007.

MAIN FINDINGS

• Providers are generally positive regarding the scheme and its intentions. ILA Scotland is recognised as an important development within the lifelong learning agenda in Scotland. It would appear that ILA Scotland is playing a growing role with respect to adult learning provision in Scotland, both with respect to widening participation and in the development of a quality learning provider base in Scotland.
• A number of key strengths of the scheme have been highlighted by participants. These include, amongst others, the ability of the scheme to attract low income learners; the prestige associated with offering ILA approved courses; and improved retention rates associated with ILA Scotland opportunities
• Throughout the course of this research study some confusion between the targeted ( ILA200) and universal ( ILA100) schemes was identified by respondents. It is recognised that a number of amendments aimed at improving the scheme have been introduced, including changes to more clearly differentiate and communicate the two offers.
• The original ILA100 offer, limited solely to courses in Information and Communications Technologies ( ICT) was felt by some providers to be helpful in supporting increased computer literacy, but others felt this approach was too restrictive.
• Many providers are aware of the variety of opportunities available through ILA Scotland. Some providers, however, expressed concern that non-certificated and "first-step" learning opportunities could/should be more extensively supported under ILA Scotland. This was understood as referring mainly to entry-level courses provided in an informal setting e.g. via community, voluntary and outreach providers. It was felt that these opportunities attract high numbers of non-traditional learners and are particularly useful in the context of widening participation. The non-inclusion of many such courses under ILA Scotland (and/or of providers who offer such courses) is felt to conflict with the overall policy objective of ILAs to widen participation.
• Providers hold mixed views regarding the £15k annual income threshold with some having a concern that it is too low, so affecting the scheme's impact on widening access.
• Although there is some overlap between the ILA200 offer and the fee-waiver for part-time students, colleges are still keen to offer the scheme as there remains a group of learners that are ineligible for the fee-waiver who can directly benefit from accessing ILA support.

Background

The importance of measures designed to increase and widen participation in lifelong learning among members of the adult population has been recognised as an important priority in the policy agenda in Scotland in recent years. The Scottish Executive's Lifelong Learning Strategy for Scotland - Life Through Learning Through Life - outlines the Executive's commitment to widening participation and removing barriers to learning, and in particular places en emphasis on improving skills and enhancing the employability of the Scottish workforce. The ILA Scotland scheme is viewed as central to this strategy as means of encouraging non-traditional learners to access learning opportunities. The first phase of the ILA Scotland scheme, the targeted offer (now renamed ILA200), was launched in Dec 2004 and is aimed at those on low incomes (income of £15,000 or less and those on benefits). It provides eligible learners with £200 funding which can be put towards a wide range of learning opportunities. The second phase, the universal offer (now renamed ILA100), was launched in Aug 2005. This offer is not income restricted. ILA100 eligible learners could access £100 funding towards basic ICT learning leading to a formal qualification/ certification up to SCQF Level 5 or equivalent. ILA100 was extended in summer 2006 to include a much wider range of courses, not just limited to courses in ICT, and leading to a formal qualification/ certification up to SCQF Level 6.

About the Study

This study recognises the developmental nature of the scheme, and attempts to evaluate the operation of ILA Scotland from the perspective of learning providers currently delivering the scheme. In addition to this, the study will attempt to gauge the impact of the ILA Scotland scheme against the following objectives:

• Widening participation in adult learning by increasing interest and uptake;
• Introducing new learners to adult learning and to provide an opportunity for those who have not recently participated in learning to do so;
• Encouraging more learning progression;
• Encouraging individuals to invest in their own learning (and take ownership);
• Prioritising the learning needs of certain groups of learners;
• Supporting the development of a quality learning provider base in Scotland.

Methodology

A scoping study of learning providers was undertaken in order to explore key issues emerging in relation to the ILA Scotland scheme. Information gathered at this stage was used as the basis for devising the interview schedule and contact strategy for Phase One interviews with 40 learning providers.

Based on information gathered in the scoping study phase, a mixed method questionnaire was developed for use in Phase One interviews. Section 1 of the interview schedule consisted of a mix of closed and short answer questions aimed at generating useful quantitative data regarding the operation of the scheme. Section 2 contained questions which allowed more in-depth discussion of issues covered in Section 1 and pertinent issues arising from the scoping study. The total numbers of those interviewed by sector in both the scoping study and Phase One are detailed as follows:

• 48 interviews in total were carried out: 17 were carried out with representatives from Scotland's Colleges; 16 from the Private Sector; 5 from the Local Authority; 5 from the Voluntary Sector; 4 from Higher Education and 1 from a charitable organisation.

Key Findings of the Research

ILA Scotland Information and Support for Learning Providers

There is a wealth of information regarding the ILA Scotland Scheme which is available to learning providers. Key sources include: ILA Scotland information and publicity materials; information targeted specifically at providers, for example, provider newsletters; the ILA Scotland website; and the learning provider helpline. In general providers are satisfied with the information and support provided to them through ILA Scotland. However, some providers have described the multiple sources of information regarding the scheme as confusing, and that it can be time-consuming navigating between them.

The ILA Scotland website is often a first port of call for providers. In general the information contained within the website is described as comprehensive and easily accessible. Some providers are confused with the layout which separates the information into zones. In particular there appears to be some confusion and overlap between the information contained within zones aimed at providers and that which is aimed at intermediaries. It has been suggested that this could be easily clarified.

The Role of Learning Providers in Disseminating Information Regarding ILA Scotland

Providers indicate that the majority of learners accessing learning opportunities are unaware of the ILA Scotland Scheme prior to contact with the learning provider. This emphasises the important role of learning providers in the provision of information, advice and guidance and points towards an opportunity on behalf of ILA Scotland to cement and formalise such activities to increase interest and uptake in the scheme.

Providers describe spending a substantial amount of time explaining the ILA Scotland scheme to learners, in particular, the differences between the two schemes.

Word of mouth has been consistently described as the most effective means of disseminating information regarding ILA Scotland.

Marketing and Recruitment Associated with ILA Scotland

Marketing and recruitment activities associated with the ILA Scotland are largely viewed positively. Television advertising is thought to be a good method of raising awareness of ILAs, but is thought to have little impact upon the recruitment of ILA learners within provider institutions. Television marketing has at times been described as stereotypical and not reflecting local circumstances, particularly in rural areas. Providers would welcome the re-invigoration of marketing activities with a view to increasing the uptake of ILA opportunities.

National marketing activities appear likely to raise general awareness of the scheme, whilst local initiatives are more likely to result in the uptake of an ILA Scotland learning opportunity.

ILA Scotland Information for Learners and Potential Learners

There are number of key sources of in information available to learners and potential learners. These include amongst others: leaflets; marketing materials supplied by ILA Scotland; information provided by learning providers; the ILA Scotland learner helpline; and the ILA Scotland website.

There appeared to be a sense of confusion regarding the differences between the ILA100 and ILA200 offers. Some providers were under the impression that ILA Scotland as a whole was restricted to ICT alone, as opposed to this being the case for only the ILA100 offer. It was thought that this could be addressed through the strengthening of information regarding the differences between the two schemes and the nature of the offers associated with them. This situation is likely to change in the context of recent amendments to the ILA100 offer (August 2006) which has been broadened to include a wider range of learning opportunities.

The ILA Scotland Scheme

The scheme is viewed positively and described as improved in the context of its predecessor. It is viewed as having some success in widening access.

The impacts of the scheme with regards to an improvement in the student experience and the opportunity for those on low-incomes to have engaged in learning were referred to as the most successful aspects of the scheme.

The ILA200 is viewed particularly positively, whereas providers are more critical of the ILA100. Such criticisms were often linked to the limited nature of the scheme and its previous restriction to ICT courses. As noted above, this restriction was lifted in summer 2006.

A wide range of ILA recognised learning opportunities are available through the ILA Scotland Scheme. The uptake of these opportunities varies across learning providers as does the involvement of providers with ILA100 and ILA200. Some LPs report having learners enrolled from both elements of the scheme. Uptake of ILA200 is viewed as higher than ILA100. Many providers regard ILA uptake as much lower than expected.

The ILA200 offer is thought to play a role in widening access. However providers hold mixed views regarding the £15,000 income threshold with some having concerns that it is too low.

Low levels of uptake and modest levels of income generated through the scheme coupled with what many providers perceive as a high administrative burden have caused some learning providers to question the benefits of the scheme from their perspective.

ILA100 generates mixed views amongst learning providers with some holding positive views regarding the aim of this offer to increase computer literacy. However some providers felt that this offer was too restrictive.

There have been suggestions made aimed at widening the ILA Scotland learner eligibility criteria, such as the inclusion of 16-18 year olds. It is thought that this group could benefit from accessing funding which would allow them to take up learning opportunities outside of formal learning sites.

ILA Scotland Course Eligibility Processes

Some providers appeared satisfied with course eligibility criteria and have not experienced any difficulties associated with course approval. In general the procedures associated with achieving approval for ILA learning opportunities are viewed as straightforward. However some providers describe the time taken to include courses as too long.

ILA Scotland Learning Provider Registration Processes and Eligibility

On the whole, the registration process and criteria associated with learning provider registration are viewed as straightforward and easy to understand, particularly for those who were involved in the prior ILA Scotland scheme. However, some LPs commented that they found the completion of the registration forms very time consuming and have little understanding of the reasons behind the need for full completion by hand of two identical forms, rather than allowing forms to be photocopied or duplicated with carbon paper. It should be noted though that these stringent procedures were introduced to strengthen the credibility of the scheme.

Administration of the ILA Scotland Scheme

Providers have expressed mixed views with regard to the level of administration associated with involvement in the ILA Scotland Scheme. This is largely associated with utilising the PROMT system and the setting up of administrative procedures connected with the scheme. Some providers are positive with respect to administrative systems, whilst others have difficulty coping with the administrative burden. Some providers were satisfied with the systems in place and described PROMT as a useful tool and welcomed the move from paper based systems. However, others experienced problems with the PROMT system and felt it was complicated and difficult to use. This was particularly significant at the early stages of their involvement in the scheme. ILA Scotland staff were recognised as playing a key role in the resolution of such issues. In many cases, these problems have reduced in number and intensity over time.

The ILA Scotland Application Process

Procedures relating to proof of income associated with the ILA200 offer are described as cumbersome and bureaucratic. There are felt to be particular difficulties for those who have no income who are required to submit a National Insurance Statement. This is a lengthy process and will only reflect the income level of the previous tax year. The procedures for those on benefits and those in employment are described as onerous. The submission of three payslips by those in employment is said by some providers to present difficulties in that applicants may be reluctant to do so, particularly in rural areas.

The Learning Token System

Providers have expressed mixed views regarding the learning token system. Some regard the whole process as simple whilst others describe it as cumbersome and bureaucratic, and have suggested that the time taken to access a token could discourage learners, in particular non-traditional learners, from accessing learning opportunities.

The learning token is described as creating an administrative burden for staff. Difficulties are experienced in encouraging students to submit tokens, impacting on staff time and income generation. Providers feel that the situation could be improved through strengthened information regarding the token and its importance; or have suggested that the token should be passed directly to the provider from ILA Scotland.

The £10 Contribution

In general, the £10 learners have to contribute themselves towards their learning generates positive views amongst providers. It is thought to cement the learner's commitment to their course and in some cases to contribute to better retention.

ILA Scotland as a Source of Funding

The level of income generated from involvement with the ILA Scotland Scheme varies according to size of LP, courses on offer within LP, and type of LP, with private organisations and colleges having the greatest turnover.

Low or moderate levels of uptake of the scheme result in low to moderate levels of income associated with it. This can result in providers feeling frustrated regarding levels of uptake, particularly in the context of high levels of administrative burden associated with what was felt to be the relatively restricted nature of the scheme, e.g. in terms of ILA100 course restrictions.

Access to funding through ILA Scotland is said to improve the sustainability of smaller providers, particularly those in the voluntary sector. However, for smaller private organisations, the time initially taken to access funding was highlighted as having the potential to lead to cash flow problems.

While within colleges there is some overlap between the £200 offer of the ILA Scotland Scheme and the fee-waiver, colleges are still keen to offer the scheme as there remains a group of learners that are ineligible for the fee-waiver who can avail of the benefits of the £200 offer. ILA Scotland is perceived as particularly useful for learners and potential learners who wish to access learning opportunities in organisations which sit outside the fee waiver scheme.

ILA Scotland Scheme - Differences Across and Between Learning Provider Sectors

Overall, all sectors were generally satisfied with the way the relaunched ILA Scotland Scheme was progressing. Some key issues were raised across all sectors with regards the administration, operation and overall purpose of the scheme.

The eligibility criteria relating to the ability of these organisations to serve as learning providers were generally viewed in a positive light, in particular those within Scotland's Colleges and HEIs. Some private providers and those within the community/voluntary sector however did comment on the cumbersome nature of the registration process.

The course eligibility criteria were generally viewed positively, however some within Scotland's Colleges were concerned about the restrictiveness of courses eligible under the ILA Scotland Scheme. HEIs noted that the length of time taken to include courses on the scheme, and the restriction of the ILA100 offer to courses up to SCQF Level 5 were issues they would like to see addressed. Providers within the community/voluntary sector were generally satisfied overall with these criteria.

There were issues across all sectors with regards to administration procedures associated with the ILA Scotland Scheme. While some thought the systems in place quite simple to operate, others thought that these procedures were time-consuming and cumbersome. However, it was also noted that once providers gained experience of these administration procedures, including accessing and administering the PROMT system, coupled with utilising the helpline advice for learning providers, many of these problems receded through time.

Clarification of the eligibility criteria for learners to access the fee waiver system within HEIs was raised by the HEI sector. This issue is particularly relevant in attracting non-traditional learners into higher education.

Mixed views were expressed regarding the procedures associated with the learning token system and there were variations across the different sectors. Among HEIs some considered the procedures as straightforward while others noted that a knock-on-effect of any delays resulted in a lack of funding for institutions. This impacted on the ability of some HEIs to offer good quality learning experiences. Some providers, especially those within Scotland's Colleges commented that learners did not recognise and often forgot to submit the token on time to the provider. The issue of 'chasing up' learning tokens was also raised by the community/voluntary sector and the private sector though the latter thought this was more of a failing on the learners' part rather than the system itself.

While uptake of learning opportunities has varied across sectors, the general consensus was that it was lower than expected. Various reasons were put across to explain these levels. Marketing and advertising of the scheme attracted much comment. While some within the community/voluntary sector thought that ILA Scotland marketing and recruitment activities were visible, others, such as Scotland's Colleges, felt that national campaigns had not been effective in attracting new learners. Private providers too felt there was not enough marketing of the scheme itself, which resulted in potential learners being unaware of the scheme and therefore not taking up learning opportunities. All sectors expressed the view that more localised activities, such as word-of-mouth, has made more of an impact in attracting new learners.

Views were expressed regarding the £15,000 threshold for the ILA200 offer, and how this has possibly impacted on levels of uptake. Within Scotland's Colleges and private providers, views were mixed as whether the figure was a fair cut-off and some in both these sectors raised the idea that the threshold should reflect regional income levels.

The restrictiveness of the ILA100 offer was commented on by all sectors, and particularly by respondents from HEIs, as a main reason for affecting levels of uptake. In addition, most sectors noted the problem of some organisations who were disadvantaged by not being in a position to offer IT courses and which ultimately affected levels of uptake of the ILA100 offer.

The community/voluntary sector raised some suggestions in relation to widening the eligibility criteria for attracting learners and/or potential learners onto the ILA Scotland Scheme. This sector would like the opportunity to attract new learners, who, traditionally, have felt less at ease undertaking learning in more formal education settings such as Scotland's Colleges and HEIs. One idea floated was that ILA Scotland could offer a route back into education and training for young people (especially those aged between 16 and 18 years of age) who previously had negative experiences of formal education.

Learning Provider Study - Future Research

Phase Two of the Learning Provider Study commenced in December 2006 and 40 telephone interviews with learning providers will be conducted throughout the winter and spring of 2007. As with the methodology techniques adopted in Phase One, a mixed method questionnaire has been devised to use in Phase Two interviews.

As well as evaluating the project overall, a key element of Phase Two is to examine the impact of the recent changes to the ILA100 offer. In order to achieve this, within the overall total of 40 learning providers, we have been re-contacting 14 providers who were interviewed in Phase One of the study and who are participating in the ILA100 offer. This is to allow us to examine any changes in their views regarding the scheme as a result of the amendments.

The overall findings from Phase Two interviews will be incorporated into a final report on Learning Providers which is due to be submitted to the Executive later in 2007.

If you any enquiries about social research, please contact us at:

Tel: 0141 242-5454
Fax: 0141 242-5455
Email: socialresearch@scotland.gsi.gov.uk
Website: www.scotland.gov.uk/socialresearch

This document (and other Research Findings and Reports) and information about social research in the Scottish Executive may be viewed on the Internet at: http://www.scotland.gov.uk/socialresearch

The site carries up-to-date information about social and policy research commissioned and published on behalf of the Scottish Executive. Subjects covered include transport, housing, social inclusion, rural affairs, children and young people, education, social work, community care, local government, civil justice, crime and criminal justice, regeneration, planning and equalities issues. The site also allows access to information about the Scottish Household Survey.

« Previous | Contents |