The Scottish Government

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EXECUTIVE SUMMARY

Contextual overview

1. In 2004 the then Scottish Executive's Enterprise, Transport and Lifelong Learning Department ( ETLLD) commissioned an evaluation of Individual Learning Accounts Scotland ( ILA Scotland).

2. The overall aim of this study was to gauge the impact of the ILA Scotland scheme in relation to the following aims, which were set out for the scheme prior to its launch:

• 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 ( i.e. people on low incomes);
• supporting the development of a quality learning provider base in Scotland.

3. A key focus of the study was the gathering of views from a wide range of learning providers and intermediary agencies associated with the ILA Scotland scheme.

4. The purpose of the ILA Scotland scheme is to encourage individuals to take up learning opportunities and invest in their learning as they do so. 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 of the policy agenda in Scotland in recent years. This focus has been reflected in a number of reports and policy documents.

5. Within these reports and policy documents there is recognition of the barriers to participation, in terms of financial support and access to flexible learning opportunities, and the ILA scheme is seen as an important response to such issues.

6. The original ILA Scotland scheme was launched in 2000 and was generally regarded as a success; however the scheme was suspended in 2001 as a result of some providers having been engaged in the mis-selling of ILAs. Plans were then made for the re-launch of an enhanced and more stable scheme.

7. The revised ILA Scotland scheme was launched in two phases. The first phase, ILA200 (previously named the 'Targeted Offer'), was launched in December 2004 and was aimed at those on low incomes (earned individual income of £15,000 or less and those on benefits) who are eighteen or over and normally resident in Scotland. ILA200 provides eligible learners with £200 funding which can be put towards a wide range of learning opportunities both accredited and non-accredited. The second phase, the ILA100 scheme (previously named the 'Universal Offer') was launched in August 2005. This offer is not income restricted. Initially, ILA100 eligible learners could access £100 of funding towards basic information and communication technology ( ICT) learning, leading to a formal qualification/certification up to Scottish Credit and Qualifications Framework ( SCQF) Level 5 or equivalent.

8. Changes were introduced in summer 2006 to both the ILA100 and ILA200 offers. The ILA100 offer was expanded to include a wide range of courses covering any subject, rather than restricted to ICT, up to SCQF Level 6 and still leading to a recognized qualification or certification. Changes were also made to the ILA200 offer. The restriction that ICT courses must lead to formal qualifications or recognised certification has also been removed. In addition, from June 1 2007, the £15,000 income threshold was raised to £18,000. The introduction of all these changes corresponds with ILA Scotland's objective of addressing financial barriers to learning and increasing participation of a more diverse or non-traditional group of learners.

9. This final report details the findings of two research strands of the ILA Scotland evaluation ¹ - the Learning Provider Study and the Intermediary Study and provides a detailed account of key themes and issues arising from the fieldwork, including views of the impact, if any, of the recent changes made in relation to the operation of the ILA Scotland scheme.

Methodology

11. Interviews (both face-to-face but predominately via telephone) were conducted with learning providers across a range of sectors, including those from the private, higher education, college, community/voluntary and local authority sectors.

12. Focus groups and telephone interviews formed the basis of the fieldwork in the intermediary strand of the study. Formal intermediary representatives from the careers and learning, local authority, employer, voluntary and trade union sectors either took part in focus group discussions or participated in telephone interviews. Informal intermediaries were also approached and interviews were carried out with them via telephone.

13. Interviews took place in two phases. In the Learning Providers Study, 82 interviews were conducted in total. 26 with key representatives from Scotland's Colleges, 26 from the private sector, 10 from local authority, 10 from higher education institutions, 8 from the community/voluntary sector and 2 from sectors which did not fall into any of the other categories.

14. Over the two phases of the study of formal Intermediaries 46 individuals participated, either through being part of a focus group or interviewed via telephone. Of the 46 who participated, 12 were from local authority, 10 from the voluntary sector, 10 from the trade union sector, 8 individuals who had attended 'Learning Uncovered' events, 5 from careers & learning and one from a sector which did not fall into any of the other categories.

15. Eight informal Intermediaries participated over the two phases of the study. Two representatives came from community education and one each from the retail sector, a library, an adult resource centre, a community centre, a family support organisation and one face-to-face interview was carried out with a learning ambassador (a learner who encourages other learners).

Perceptions of the ILA Scotland scheme

16. Representatives from both learning providers and intermediary organisations agreed that the ILA Scotland scheme is, with respect to the provision of support for part time learners, widening access to education and training and the promotion of greater flexibility, a valuable addition to other forms of provision. While other forms of financial support, such as fee waivers, exist, ILAs are regarded as valuable in that they provided learners with a wider choice of possible providers and not just restricted to more formal educational settings, such as colleges and HEIs. For many client groups the opportunity to 'learn outside the system' was welcomed.

17. The ILA200 offer in particular was recognised by learning providers from all sectors as being a useful source of encouragement and financial assistance for re-entry to learning, particularly for those on low incomes and/ or who are often not in employment. The value of recurrent funding was also recognised in that this provides learners with opportunities for progression.

18. The issue of building confidence is key in encouraging learners to use new learning experiences and qualifications to improve skills and employability. Respondents from Trade Unions commented on the role of ILA Scotland in improving existing skills of the workforce, especially workers who may not normally be in a position where they can afford to pay for courses.

19. Some intermediaries discussed work with learners who are coming to the end of their working life and/or facing redundancy, who view the ILA Scotland scheme as one route for individuals to think about when preparing 'for the next step of their lives'.

20. Whilst respondents recognised the strengths of the ILA Scotland scheme, it is not seen as a stand alone initiative, but one which complements other initiatives. A number of respondents suggested that it is an interest in undertaking a course which is the initial impetus for learners uptaking opportunities, rather than the potential for financial support.

21. The ILA Scotland scheme was described as supporting processes of re-engaging with learning most effectively by strengthening links with a wide range of different learning providers, many of whom may be community-based.

22. While the value of ILAs in supporting learning is recognised, respondents also suggested that certain groups may face difficulties in accessing learning opportunities through the scheme. This includes learners with disabilities or mental health difficulties, who may experience confidence issues in both making contact with ILA Scotland and completing the application form unless they receive a considerable measure of support.

23. In both phases of the research a gap in provision for those school leavers aged between 16 and 18 was identified. This group represents a considerable body of learners who may be able to benefit from ILA funding and try learning in a different environment in order to gain a vocational qualification to improve employability.

24. Growing interest from people for whom English is a second language was also identified as an important issue for the ILA Scotland scheme. While ILA Scotland publicity leaflets and application packs are available in a wide range of Asian and European languages, it was suggested by some respondents that more could be done to improve provision.

25. Criticisms of the ILA100 scheme centred on a perceived limitation in opportunities, and the disparity in opportunities offered through the ILA100 and ILA200 offers.

26. Representatives from both learning providers and intermediaries also commented that learners are often confused about the restrictions associated with the ILA100 offer and view these restrictions as a barrier to accessing the scheme. Respondents from intermediary agencies described difficulties in explaining the differences between those learning opportunities available under the ILA100 offer, and those which are not.

Information, marketing and awareness of the ILA Scotland scheme

27. Learning providers and intermediaries in general suggested that the information provided by ILA Scotland is accessible, clear, informative and useful in understanding the scheme and responding to the needs and queries of learners. Information and marketing material targeted at learners was also described as very useful. Sources of support included ILA publicity such as leaflets and posters, the website, input of ILA representatives and email contact. While there was some limited criticism of the helpline in terms of the consistency of advice provided, respondents were in general very positive.

28. The majority of providers are positive with respect to information and support by ILA Scotland staff and have described building strong, personal relationships with the staff. In this manner, staff accessibility and approachability is both commended and welcomed.

29. The ILA Scotland website is used widely by learning providers to source information for both themselves and learners. It is generally agreed to have a wealth of helpful and relevant information and is easy to navigate. However some respondents referred to the difficulties in identifying the learning opportunities which learners wish to access. In some cases this can be due to non-standard search criteria.

30. While many respondents commented favourably on the clarity and quality of the information, some participants, in both Phase One and Phase Two, described understanding and awareness of the ILA Scotland scheme amongst staff as mixed. In a number of cases, knowledge and information about the scheme was not getting through to the people who should be informed. Knowledge and understanding was noted as being better amongst staff who are actively involved with the scheme. Ensuring that an appropriate range of staff have the levels of knowledge and understanding of the ILA schemes which would be necessary for its effective operation is an area where further work can usefully be done.

31. Awareness amongst client groups is described as mixed and often limited. Agencies working with learners with disabilities, mental health problems or substance misuse problems were particularly likely to comment on low levels of awareness. It was also suggested that people with literacy difficulties are often quite uncertain about the support which may be available through the scheme, and find it difficult to navigate the website.

32. It was suggested by representatives from both learning providers and intermediary agencies that existing marketing approaches are likely to be most successful with those individuals who were already interested in learning. While it was recognised that national TV advertising had helped to raise the profile of ILAs, a range of respondents raised doubts about the effectiveness of this form of advertising reaching the key target groups and actually recruiting learners onto programmes. There was strong argument that there is a need for greater co-operation between ILA Scotland and other locally based agencies in developing more effective marketing strategies.

33. Respondents from learning providers and intermediary agencies reported that learners are most likely to have heard about the scheme through 'word of mouth'. This is considered particularly relevant in instances where client groups have limited access to computers.

34. Some agencies viewed marketing and recruitment activities undertaken by ILA Scotland as "too slick" for their client groups. They also emphasised the value of 'thinking out of the box' with respect to advertising, and moving beyond obvious locations such as colleges and libraries to venues which are widely used in local communities such as pubs, supermarkets or community centres.

35. In providing information about the ILA scheme, intermediaries in particular suggest that they play an important role in not only raising awareness of the ILA Scotland scheme but providing support and encouragement to their client groups to enable them to access the scheme. They suggest that they have used information provided by ILA Scotland staff to actively encourage participation among groups who would otherwise not be likely to have the confidence to participate.

36 Many respondents recognised the value of the links which they had with ILA Scotland staff in disseminating information about the ILA scheme, and suggested that if these links could be strengthened this could be an important means through which key target groups could be reached. The relationship which has been established between ILA Scotland and Trade Unions was noted as an example of good practice which could possibly be used as a model in developing links with other agencies.

37. Associated with this perceived need for changes in the approach to marketing and advertising was the suggestion from respondents in both Phase One and Phase Two that the information available to intermediaries did not provide enough explicit detail about learning opportunities. Too much emphasis is seen to be placed on funding, and not enough on the range of learning opportunities which the ILA Scotland scheme opens up. It was suggested that for many potential learners the starting point is for them to become interested in taking a course, the availability of funding assistance is then an added incentive.

38. The importance of avoiding terminology and acronyms which are confusing for potential learners, particularly those with limited recent experience of the educational system, was also raised. For example SCQF (Scottish Credit and Qualifications Framework) is not a term which is immediately clear to many people unfamiliar with terminology associated with the Scottish education system.

39 It is recognized that the size of Trade Union agencies allows extensive collaboration with ILA Scotland. Logistical considerations for smaller agencies might mean that such a relationship could be difficult to sustain. It is also recognized that resource constraints would make it difficult for ILA Scotland to develop similar relationships with a wide range of agencies without additional resources.

Procedures associated with the ILA Scotland scheme

40. The process of registering as a learning provider was generally viewed as a positive and straightforward experience. Those providers who had been involved in the previous ILA scheme, as well as those who worked closely with learndirect scotland, were particularly satisfied with the process.

41. The valuable support provide by ILA Scotland staff was noted by a range of respondents. The rigour of the registration process for learning providers was accepted as appropriate by many respondents, in light of increased measures of security in the re-launched scheme.

42. In Phase One of the research, learning providers commented on the additional workload that they experienced due to the administrative demands associated with course eligibility . However, in Phase Two, more learning providers stated that the administration involved in the scheme was subsumed into their roles as part of overall involvement in the scheme.

43 There were very mixed responses to use of the Provider Opportunity Management Tool ( PROMT) tool. Some providers reported no difficulties and welcomed the increased automation of the registration process, though getting used to the PROMT tool presented a number of initial obstacles. Support from the ILA Scotland call centre and email contact with staff helped to alleviate these problems.

44. In Phase One of the research the PROMT tool was described as cumbersome by many larger learning providers who report that the processes for entering and updating data were both lengthy and time consuming. However, by Phase Two of the research responses were generally more positive, and it appeared that learning providers felt they had greater competency regarding the use of the tool.

45. An important change which has been widely welcomed by providers has been the introduction of flexible start dates (in May 2006). This enables learning providers to enter courses which do not have a designated start or end date in the PROMT tool without the need for the monthly updates which were previously required.

46. The application process has been noted by a number of respondents as being bureaucratic and creating barriers to participation for learners with literacy or numeracy problems, older people, learners with disabilities and those from lower socio-economic backgrounds. Intermediary agencies in particular described the process as time-consuming, and noted that this was one of the least successful aspects of the scheme.

47. The application form itself was described as cumbersome and difficult to complete. Agencies suggested that it should be made more streamlined and user-friendly. Representatives whose client groups include learners with learning difficulties highlight that the application pack is inaccessible for these learners.

48. Intermediaries were in general more critical than learning providers. This may reflect the different roles of these groups of respondents, with intermediaries dealing with a wider cross-section of potential learners, many of whom have not yet established firm involvement with learning providers.

49. Some learning providers have also noted that on occasion, the time taken to complete the application process has meant that people have had difficulty accessing the learning opportunities for which they are eligible.

50. In both phases of the research, learning providers and intermediaries have identified the telephone call that the potential learner has to make to request an application form as a barrier. It was suggested that some learners, particularly those from lower socio-economic backgrounds, and those with mental health needs or learning difficulties, are often daunted by the prospect of phoning. Intermediaries and learning providers report their attempts to provide support for applicants, but suggest that the current arrangements make this difficult.

51. There is a strong feeling amongst some intermediaries that they could provide an alternative to the initial telephone call through acting as a channel for the dissemination of application packs. It was highlighted that certain agencies, for example Trade Unions and local authority agencies, are fully accountable bodies and could provide a mechanism through which to supply application packs to members or employees. Voluntary groups also suggested that their distinctive roles in providing support could be more clearly recognised, and enhanced within the scheme.

52. It was also noted that the facility to apply online has been described by learning providers as a sought after tool. learndirect scotland are currently piloting an online application tool for use by learners and this has been welcomed.

53. Both learning providers and intermediaries in both phases of this research described income assessment procedures as often time consuming, cumbersome and complicated, and highlighted as a barrier to accessing ILA Scotland opportunities.

54. The requirement to supply payslips was identified as presenting several different types of problematic issues. Many individuals have difficulty submitting wage slips due to loss, or not holding on to them. Respondents also suggested that learners may be reluctant to go to their employer's personnel department to get copies of wage slips as they are worried that their employer would realise that they were going on a course and that this may affect their job security.

55. Overtime payments and their effect on an individual's overall income assessment was also noted as a potential issue. It was feared that this would cause certain types of workers, for example factory workers, to have their annual salary over-estimated due to additional and often inconsistent overtime payments. Additionally, some difficulties have been highlighted in relation to expenses added to salaries.

56. For those who are self-employed, but on relatively low incomes, the requirement to provide audited accounts can act as a barrier.

57. It was also suggested that there are people in a range of positions who have no regular income, e.g. women who are not in paid employment outside the home, but find it difficult to obtain proof of this position, and procedures involved in securing a National Insurance Statement can be complicated and drawn out.

58. For those in receipt of benefits, including incapacity benefit, and tax credits, it is suggested that many are already uncertain about the rules and regulations regarding entitlements, and requiring evidence for eligibility for ILAs adds to this uncertainty.

59. Respondents also commented on the additional burdens which are associated with having to provide this evidence on an annual basis if entitlement to the ILA200 is to be maintained. This led to the suggestion that a rolling system requiring annual confirmation or updating of information might be a way to minimise the burden associated with this requirement.

60. The £15,000 income threshold had been identified as problematic by a number of respondents during Phase One and the earlier part of Phase Two. As a result the respondents in the later stages of Phase Two, who were aware of the raising of the income threshold to £18,000 in June 2007, welcomed this development. This is seen by learning providers as a significant step towards enabling those people whose salaries are marginally above this to access ILA approved learning opportunities.

61. The learning token is the means through which learners pay providers for their course with their ILA funding. While some respondents, and particularly some providers, regard it as an accepted part of the administrative process, a considerable number of others, both learning providers and intermediaries, found the process cumbersome and problematic. Intermediary representatives were generally critical regarding the learning token system describing it as confusing, both for themselves and for the client groups.

62. In particular, participants describe the terminology as confusing and that the term 'token' generates expectations that it is a plastic coin or a card similar to a bank card as opposed to paper documentation. In some cases, this misunderstanding has had a knock-on effect for learning providers in gaining access to ILA funding and the time taken to encourage learners to submit tokens.

63. Suggested improvements to the learning token system centred around making the process more automated and keeping all parties informed ( ILA Scotland as well as the learner and provider).

64. All learners are required to make a payment of £10 towards their course to encourage an element of personal commitment. A number of respondents from both learning providers and intermediaries welcomed the contribution, feeling that it was a reasonable amount for the learner to pay in return for the financial assistance that the ILA Scotland scheme could offer. The contribution was also described as a way of encouraging learners to invest in their own learning.

65. However, a number of intermediaries in both Phase One and Phase Two view the contribution level as too high, especially for the unemployed and other learners on very low incomes. Some agencies have been reported as paying the £10 on behalf of their client groups. A further argument presented by some learning providers was that collecting the £10 contribution presented an additional administrative task.

Awareness and impact of recent changes to the ILA Scotland scheme

69. A mixed picture emerged amongst learning providers and intermediary agencies regarding awareness of the recent changes to the ILA100 and ILA200 offers. For those that were aware of the changes, more were knowledgeable of changes made to the ILA100 offer than ILA200.

70. The relationship between ILA Scotland and learning providers was identified as a key factor in determining the level of awareness of changes to the ILA scheme. Respondents who had a close and direct relationship with ILA Scotland noted that they had been kept informed of changes to the scheme through e-mail communication and newsletters. Organisations which did not have such direct links with ILA Scotland reported that their knowledge was often more limited and it depended on links with other organisations. Amongst respondents from intermediary organisations, trade union representatives had the greatest awareness of the changes, potentially as a result of the already mentioned strength of relationship that exists between this sector and ILA Scotland.

71. Some participants in Phase Two of the study remarked that awareness within their intermediary agency with regard to the recent changes to the scheme was very varied, and that there may be colleagues who knew considerably more or less than they did. Participants also indicated that knowledge of changes of this kind will depend on their 'need to know', which will be associated with the work which they are undertaking.

72. Levels of awareness of changes amongst learners was described as very low, with the vast majority of providers stating that their perception was that learners' knowledge of these changes was minimal. Thus learning providers and intermediaries provide a key role in disseminating information about changes to potential learners. Providers noted that for many learners, attaining the general knowledge and understanding of the ILA Scotland scheme, was more important and takes precedent over information about the changes.

73. While it was commented that awareness of the scheme, including the changes introduced, was quite low amongst learners, this reflected the extent to which they saw the scheme as being relevant to their needs. One provider suggested that if potential learners are not ready to take up a learning opportunity then they would probably not take much notice of the publicity material circulated that advertises the scheme.

74. The impact of the recent changes on widening the learning opportunities available to potential learners and introducing new learners to adult education was generally welcomed by respondents. The changes were noted as having an impact on increasing the range of opportunities available, widening participation, and providing new opportunities for progression.

75. From the limited number of learning providers who were able to pass comment on changes introduced to ILA200, the removal of the restriction that ICT courses must lead to a formal qualification or recognised certification generated a mixed response. On the positive side, it was stated that removing the restriction would encourage more learner progression, whilst other providers questioned this change and emphasised the value of the attainment of a recognised formal qualification which was seen to enhance a learner's career prospects.

76. The change to ILA100 where courses would now be offered up to and including Scottish Credit and Qualifications Framework ( SCQF) Level 6 was welcomed by providers in different sectors as extending the range of courses and opportunities which will be available at a local level. However while some learning providers welcomed the broadening of the range of courses on offer under ILA100, other providers thought that the extension did not go far enough in widening access to learning opportunities.

77. From the limited number of interviewees that referred to the threshold increasing to £18,000 after June 2007, the general consensus was that it was a positive move which would result in more learners being attracted onto the scheme and have a positive impact on widening participation.

Summary and conclusions

Perceptions of the ILA Scotland scheme

• The ILA Scotland scheme has been generally welcomed by both learning providers and intermediaries. It is seen as a valuable form of support to be used in conjunction with other initiatives.
• Many people need encouragement to take steps into learning, and develop what has been described as a 'learning attitude'. This points to the importance of partnerships between agencies in developing the potential of the ILA Scotland scheme.
• There is also a need to ensure that the scheme fully addresses the needs of learners with disabilities, mental health needs or learning difficulties, as well as economic migrants for whom English is a second language.
• Provision for 16-18 year olds in an alternative environment could be a valuable form of support in assisting with re-engaging in learning.
• While the extension of the ILA100 scheme to cover a wider range of provision was welcomed, respondents continued to question why restrictions in the range of provision apply to this part of the scheme but do not apply to the ILA 200.

Information, marketing and awareness of the ILA Scotland scheme

• The information provided by ILA Scotland to learning providers and intermediaries was generally described as informative and useful. Respondents commented favourably on the material available through a range of sources, including the website, leaflets and posters, as well as support provided by ILA staff.
• Despite satisfaction with information, levels of knowledge and understanding of the ILA Scotland scheme of staff within learning providers and intermediaries was described as patchy. It was recognised that this was partly associated with internal dissemination strategies, and suggested that more could be done to address this.
• Many potential learners seemed to have little knowledge or understanding of the ILA scheme before they come into contact with learning providers or intermediaries. Staff from these organisations suggested that they had a key role in disseminating information about the scheme and that 'word of mouth' was a key means through which many learners and potential learners received information.
• Agencies working with learners with disabilities, mental health problems or substance misuse problems were particularly likely to comment on low levels of awareness. There was a strong argument that there is a need for different approaches to marketing the scheme to target learners in these groups, and greater cooperation between ILA Scotland and other locally based agencies. More could be made of the expertise of ILA staff and the range of marketing materials which they have in developing locally based strategies as a means of raising awareness.
• Respondents in both Phase One and Phase Two suggested that there was too much emphasis on the funding, and not enough on the range of learning opportunities which this opens up.

Procedures associated with the ILA Scotland scheme

• The process of registering as a learning provider was generally viewed as a straightforward experience for most learning providers. The rigour of the registration process for learning providers was understood and regarded as appropriate by many respondents.
• The processes for establishing courses as eligible for ILA funding through using the Provider Opportunity Management Tool ( PROMT) developed by ILA Scotland were viewed as onerous by many respondents in Phase One, but were more generally accepted by respondents in Phase Two. This was partly associated with growing familiarity among learning providers, changes which they introduced to their own procedures, and changes introduced by ILA Scotland.
• The application process for learners has been noted by a number of respondents as being bureaucratic and creating barriers to participation for certain groups of learners, including those with literacy or numeracy problems, older people, learners with disabilities and those from lower socio-economic backgrounds.
• In both phases of the research both learning providers and intermediaries identified the telephone call that the learner has to make to request an application form as a potential barrier. This relates to issues surrounding the confidence and communication skills of the learner. It was suggested that the process could be made easier for the learner if the learning provider or intermediary were more involved.
• Learning providers and intermediaries reported various steps which they had taken to support applicants with this initial telephone call, including work with learners with a variety of disabilities. However it was suggested that the present arrangements made it difficult to provide support of this kind.
• There is a strong feeling amongst some intermediaries and learning providers that arrangements could be put in place which would make it easier to provide support for ILA applicants. One suggestion is that they could provide an alternative to the initial telephone call through acting as a channel for the dissemination of application packs.
• It was also noted that learndirect scotland are currently piloting an on-line application tool for use by learners and this has been welcomed.
• Learning providers and intermediaries in both phases of this research described income assessment procedures associated with qualifying for the ILA200 as often time consuming, cumbersome and complicated. They were highlighted as a barrier to accessing ILA Scotland opportunities.
• Problems with income assessment led to suggestions that there is a need to review the arrangements which are currently in place. While it is accepted that some form of assessment will be required for ILA200, it is suggested that existing arrangements are unnecessarily onerous. One suggestion is that once an initial assessment has been made, learners could confirm annually that their circumstances have not changed, and provide information about any relevant changes.
• The £15,000 income threshold had been identified as problematic by a number of respondents during Phase One and the earlier part of Phase Two. As a result the respondents in the later stages of Phase Two, who were aware of the raising of the income threshold to £18,000 in June 2007, welcomed this development.
• A considerable number of learning providers and intermediaries found the processes associated with the Learning Token as cumbersome and problematic. Intermediary representatives were generally critical regarding the learning token system describing it as confusing, both for themselves and for the client groups.
• A number of respondents from both learning providers and intermediaries welcomed the £10 contribution which learners are required to make. The contribution was described as a way of encouraging learners to make a commitment to their own learning. However, other intermediaries in both Phase One and Phase Two view the contribution level as too high, especially for the unemployed and other learners on very low incomes.

Awareness and impact of recent changes to the ILA Scotland scheme

• Awareness of recent changes depended on level of contact with ILA Scotland and internal dissemination strategies. Many learner provider respondents who were in regular contact with ILA Scotland had a good level of awareness, respondents from intermediaries such as trade unions also had a good level of knowledge. Within these organisations level of knowledge among other staff depended on their internal arrangements for dissemination.
• Most respondents reported that knowledge of changes among learners and potential learners was very limited until they were informed by providers or intermediaries.
• The impact of the recent changes on widening the learning opportunities available to potential learners and introducing new learners to adult education was generally welcomed by respondents.
• While some learning providers welcomed the broadening of the range of courses on offer under ILA100, other providers thought that the extension did not go far enough in widening access to learning opportunities.
• From the limited number of interviewees that referred to the threshold increasing to £18,000, the general consensus was that it was a positive move which would result in more learners being attracted onto the scheme and have a positive impact on widening participation.

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