Executive summary

ESOL provision plays a crucial role in supporting inclusion, integration, and opportunity for people settling in Scotland. It enables learners to communicate effectively in English, access essential services, progress into education and employment, and participate fully in community life. High‑quality ESOL learning strengthens both individual wellbeing and Scotland’s wider social and economic fabric by unlocking the potential of a diverse population.

The national ESOL landscape, however, remains complex and challenging. Demand for ESOL learning continues to exceed available provision, a situation that many stakeholders believe has worsened since the publication of 'Learning: For All. For Life.' in 2024. Persistent barriers continue to restrict learners’ access, participation and progression including:

• limited childcare
• high transport costs
• long waiting lists
• difficulties in recognising overseas qualifications 

Despite these pressures, ESOL providers across Scotland demonstrate strong commitment and creativity. Person‑centred approaches, trusting relationships between tutors and learners, and a broad mix of formal and informal learning opportunities are enabling many learners to improve their English. This is helping learners to build confidence, connections, and pathways into further study or employment. Effective partnership working in a number of local authority areas, such as coordinated referral systems and innovative volunteer‑supported initiatives, helps learners access the right support at the right time.

However, the absence of a coherent national ESOL strategy and consistent and effective local planning continues to result in fragmented provision and inconsistent progression pathways. Significant variation exists between local authority areas in the availability, coordination and funding of ESOL learning. Short‑term or uncertain funding arrangements, combined with pressures on staffing and limited access to specialist training, undermine the stability and development of the ESOL workforce. These factors contribute to a ‘postcode lottery’ that affects learners’ ability to access and progress through ESOL learning equitably.

Overall, Scotland’s ESOL landscape is characterised by dedicated partners working under significant strain, strong practice in places, and persistent systemic barriers that limit impact. Achieving consistent, high‑quality ESOL provision for all learners will require clearer national direction, stronger partnership structures, and a more coherent approach to progression. There needs to be deeper engagement with employers, a sustainable workforce plan, and a long‑term funding model that facilitates stability and strategic planning.