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EXECUTIVE SUMMARY
Introduction and background
1. The former Enterprise, Transport and Lifelong Learning Department of the Scottish Government, commissioned in January 2007 a study to examine the impact of the entry of Accession 8 (A8) countries to the EU in 2004 and the introduction of the UK citizenship test, on English for Speakers of Other Languages ( ESOL) provision throughout Scotland.
2. ESOL is a key factor in the successful integration of migrant groups. Competency in English is known to help secure stable employment and improve the quality of daily life and welfare, as well as contribute to social inclusion, integration and active citizenship. The aim of the study was to help the Scottish Government understand the current level of ESOL provision in Scotland, and gain an insight into possible future demand. The findings from the research will feed into the development of future ESOL provision in Scotland.
3. This study focuses mainly on publicly funded ESOL provision, concentrating on FE Colleges, Community Learning and Development Partnerships, Adult Literacy and Numeracy Partnerships, and voluntary and community organisations, though to develop a full picture of ESOL, private providers and Higher Education Institutions ( HEIs) were also considered.
Research methods
4. In order to gain a comprehensive understanding of ESOL providers and learners in Scotland, we undertook a multi layered approach which included quantitative and qualitative research methodologies. The following list summarises our approach:
- analysis of datasets from the major funding body, the Scottish Funding Council and the Scottish Qualifications Authority who track learners on accredited courses;
- analysis of national datasets from the Office of National Statistics, and the Home Office as well as voluntary organisations such as The Scottish Refugee Council;
- distribution of an on-line survey to over 200 providers to gather information on the courses they deliver and their capacity;
- 49 telephone interviews with colleges, other providers and stakeholders; and
- 30 face-to-face interviews with learners and providers to discuss their experiences of ESOL courses.
5. Combining the results from the above research methodologies enabled us to draw conclusions from both providers and learners to meet the research objectives.
Characteristics of learners
6. The majority of ESOL learners in Scotland are female and aged under 40 years. Data on the ethnicity and country of origin of learners suggests that over the last few years many more learners fall into the category 'White', reflecting economic migrants from A8 countries.
Provision of ESOL
7. The supply of ESOL provision in Scotland varies in different areas across Scotland. Although the provision of ESOL has grown in all areas except Central West, it has not grown at the same rate in all areas. Notably, areas which had little ESOL provision previously, such as Highland/ WI, South West and South East 1, have seen a considerable growth in provision . In the last few years most of this growth has been provided by local authorities 2.
8. Simultaneously, the range of ESOL provision offered to learners has expanded, offering different levels of learning, from beginner to Cambridge Advanced; different levels of intensity, from short full-time five week courses to a few hours a week over a year; there has also been an increase in the number of courses offering accredited learning and qualifications. Unsurprisingly, it is the urban centres of Glasgow and Edinburgh that offer the widest range of ESOL provision, with limited supply and choice in more rural locations.
9. In recognition of potential cultural barriers to undertaking ESOL classes, certain colleges and local authorities offer provision for specific groups such as asylum seekers or women only classes.
10. Of providers who responded to the survey, some have embedded citizenship provision within their ESOL classes, others hold separate citizenship classes. However, the majority of providers do not provide specific preparation for the citizenship test as part of their ESOL provision.
Demand for ESOL
11. A8 nationals want to undertake ESOL classes in order to improve their English to assist them with settlement and their career prospects either in the UK or their home country. The number of learners undertaking ESOL classes in Scotland has increased from 14,500 in 2003-04 to more than 19,000 in 2005-06. As a result, most ESOL classes are full, with any places that become available through learners dropping out being quickly filled. Waiting lists are often used to fill classes during the first few weeks of the course. Few providers have problems filling their courses, simply through word of mouth.
12. The increasing demand for ESOL from A8 nationals has been significant in nearly all areas of Scotland with demand outweighing supply. Such demand has stimulated new provision in areas that have not traditionally had BME migrants and asylum seekers.
13. There is some evidence of providers working together to meet learner demand. This is done through referring applicants to other providers if they offer a more appropriate course for the learner, constantly assessing the provision with demand in relation to location and timing of courses, prioritising specific types of learners, adapting the content of courses to include elements of the citizenship test, and keeping short term waiting lists to fill the places of learners who drop out of courses in the initial weeks.
14. Although some providers keep waiting lists, which may give an indication of demand for ESOL, they should be treated with caution as they are administered differently by different providers. Other providers do not keep waiting lists as a matter of policy, therefore making it difficult to build an accurate picture of demand.
Barriers to provision
15. There were a number of issues raised regarding funding for ESOL provision. For many providers, current funds are due to come to an end, and they are uncertain of what the future may hold to enable them to continue delivering current levels of provision. In addition, providers are often unaware of alternative sources of funding.
16. There are issues associated with recruiting and retaining qualified ESOL teachers. Short term funding in the non- FE sector does not allow for long term planning of provision, often leaving staff feeling insecure about their future. Some public sector providers commented that they are affected by the growth of private providers, who they feel have more flexibility and can, in some cases, entice staff with higher salaries.
17. Fees for ESOL provision vary according to the learners' personal circumstances and the type of provider. For FE providers there is a policy to waive fees for full-time UK and EU learners. Learners from other countries will generally be charged the full fee. This policy can continue as long as providers continue to receive enough funding to cover teaching costs, and providers partner with other organisations and government bodies to deliver courses, and providers receive funding to deliver courses.
Barriers to individuals
18. There are a number of barriers that learners face in accessing ESOL provision. In rural locations, there are transport issues, where public transport can be infrequent and costly. For those learners with the lowest levels of English, and who may well be earning the minimum wage, course fees can prevent access to ESOL provision if funding or sponsorship is not available. Some providers highlighted the difficulties associated with the teacher not speaking the native language of learners, sometimes making it difficult for learners to gain understanding of vocabulary and participate in class discussions.
19. There is a need for ESOL provision to be flexible with hours, days and sometimes location of courses. If learners are in employment and their working pattern changes, they are sometimes forced to drop out of courses. In some locations, classes are run at multiple times so that learners can attend a class at a different time, maintaining their participation.
20. More specifically for women, who form the majority of learners, there are often considerations regarding childcare during course times, and cultural barriers to be addressed for those from communities where women are not expected to undertake activities outside the home.
21. Private providers and HEIs' experiences suggest that learners are prepared to pay fees where: there is a clear work related benefit or the learning is adapted to the learner's needs with regard to place, time and content; and when undertaking a higher level advanced course because this is more likely to aid entry to a higher skilled job .
Conclusion
22. The number of learners undertaking ESOL in Scotland has increased in recent years, and consequently, the nature and amount of provision available has increased. However, a lack of available places, busy waiting lists where they are kept, and the scale of potential learners indicate a need for further provision. Although the majority of demand remains in urban centres, trends in the numbers of A8 nationals indicate that areas where there was previously little demand, need to sustain and grow ESOL provision as well. The introduction of the UK citizenship test appears to have had little impact on ESOL demand thus far. However, it is anticipated that this will increase in the future.
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