Thematic review of the planning and delivery of English for speakers of other languages (ESOL) provision in Scotland

Background

Published
04/02/2026
Last updated
10/02/2026

This thematic review was carried out at the request of the Community Learning and Development Strategic Leadership Group (CLD SLG), chaired by the Minister for Further and Higher Education. The CLD SLG was established following the publication of 'Learning: For All. For Life', the report from the Independent Review of Community Learning and Development published in June 2024. This report and the Evaluation of community learning and development in Scotland published in December 2024, identified urgent issues in relation to learners’ access to and progression through ESOL learning. The Minister and CLD SLG wished to understand the initial response to the crisis.

The CLD SLG requested that HM Inspectors gather insights into what has changed since both reports were published. This should include where improvements are emerging and what barriers remain. English as an Additional Language (EAL) provision in schools was out of scope for this review.

The ESOL landscape is complex, with a diverse range of learners with differing requirements. Many learners have experienced trauma, and some have no previous experience of formal education. Others come from a professional career that they wish to return to. Arrangements for learners seeking asylum differ from those who have arrived in Scotland on visas or as part of a resettlement scheme. Learners almost always need to fit their English learning around their busy lives.

ESOL programmes are delivered in colleges and local authority community-based provision. The third sector also plays a valuable role in ESOL delivery. Most college provision is funded through the Scottish Funding Council (SFC). Other funding streams include UK resettlement schemes, the Scottish Government New Scots Integration Fund and other initiatives aimed at employability, such as No One Left Behind and the UK’s Multiply fund. ESOL provision includes classroom-based college courses, employability courses, conversation cafes, and informal support delivered by a mix of paid staff and volunteers. ESOL courses may be accredited and non-accredited.

Currently, there are no formal arrangements or tracked data identifying the demand for ESOL provision across Scotland. However, individual stakeholders agree that they are unable to meet current demand, which has continued to grow at a time when resources have reduced. For example, in Edinburgh, census data shows that 37,000 people identify as not being proficient in English. Yet only around 1,700 learners attend college ESOL programmes in the region. Although this does not account for learners accessing provision not provided by colleges, these figures demonstrate a significant gap.