Introduction

Providing ESOL has never been more complex.  Ten countries have joined the European Union since 2004, providing significant streams of migrant labour. Britain continues to be a destination of choice for migrants as a result of our strong and stable economy and tradition of tolerance.  These factors have had the net effect of increasing the demand for ESOL.

We have already implemented guidance which ensures ESOL funding is targeted towards the most disadvantaged groups. Funding changes were introduced in August 2007 to improve accessibility for the most vulnerable learners. This included £4.6m to the discretionary Learner Support Fund for spouses and low-paid workers, and asked those who could afford to pay for ESOL to contribute up to 37.5% towards the cost of ESOL provision.  We are monitoring the impact of these changes with the Learning and Skills Council (LSC).

However we are still not convinced that enough of the hardest to reach are being attracted into ESOL provision.  We believe local authorities and their partners are best placed to define the issues which are hampering community cohesion in their areas and design the solution to the specific questions they face.  Those who have made a long-term commitment to the UK, and suffer social exclusion and poverty, or are raising a family, will now be prioritised.

The number of short-term migrant workers is increasing and we recognise the importance of them being able to speak English. However, we believe those who benefit economically from migration should also bear some of the costs: it is essential then that employers train their workers to the required standard of English for safe and inclusive working.

Focusing ESOL on community cohesion is not just a matter for the DIUS.. This challenge requires a coherent approach across Government to deliver real improvements.  Key areas in which we are playing our role include:

• Working with the Home Office on reforming the UK citizenship process. The new points-based system will ensure skilled migrants from outside the EU have an appropriate level of English proficiency before they arrive in the UK. Further work is underway to consult on reviewing marriage visas and the requirements for these visa applicants to demonstrate competency in English before they arrive.
• Working with the Department for Communities and Local Government to hold two joint citizens' juries on ESOL. These juries in London and Hull provided useful input from the general public and the findings will influence our thinking when considering the outcomes of this consultation.
• The work of the British Council together with the Department for International Development's work on improving education standards and raising literacy levels in developing countries may also contribute.
• Working across Government and with the Cabinet Office in particular, to maximise the very valuable contribution that the voluntary sector can make to the community cohesion process. This includes the engagement of faith communities, on-line provision and volunteering linked to citizenship. Much good practice exists to build upon.
• Making sure that a broadening of the ESOL agenda does not compromise the real improvements in quality standards that have been made over the past five years.

Definition of Community Cohesion

The Commission on Integration and Cohesion defines an integrated and cohesive community as one where:

• There is a clearly defined and widely shared sense of the contribution of different individuals and different communities to a future vision for a neighbourhood, city, region or country;
• There is a strong sense of an individual's rights and responsibilities when living in a particular place - people know what everyone expects of them, and what they can expect in turn;
• Those from different backgrounds have similar life opportunities, access to services and treatment;
• There is a strong sense of trust in institutions locally to act fairly in arbitrating between different interests and for their role and justifications to be subject to public scrutiny;
• There is a strong recognition of the contribution of both those who have newly arrived and those who already have deep attachments to a particular place, with a focus on what they have in common; and
• There are strong and positive relationships between people from different backgrounds in the workplace, in schools and other institutions within neighbourhoods.

The acquisition of the English language is key to achieving these outcomes.

Recent Changes to ESOL funding

Demand for ESOL has exceeded all the expectations laid out in the Skills for Life strategy in 2001. ESOL enrolments tripled between 2001 and 2005.  Government funding increased at a similar rate and has now stabilised but even with the extra investment, provision has been unable to meet the demand leading to long waiting lists. The most disadvantaged learners, often those long settled in the UK, face the biggest barriers to access.

In October 2006, the then Department for Education and Skills announced that from 2007/08 ESOL learning would no longer attract automatic fee remission. This was to support learning for the people who need it most.  We believe that those who benefit from the migration process, such as employers and/or better paid migrant workers should meet their fair share of the costs. 

Those being asked to pay towards their ESOL provision will pay up to a maximum of 37.5% increasing each year up to 50% by 2010.  Government continues to support the estimated 50% of learners eligible for full fee remission and financial help has been made available for hard to reach groups, particularly spouses and low paid workers, through  £4.6m for 2007/08 to the discretionary Learner Support Fund.  DIUS and the LSC will monitor the impact of this additional funding to decide the extent of support that might be needed in future.  Future funding for ESOL, including changes resulting from our consultation proposals will come through the LSC at comparable levels to now, but with increases for inflation.

Employers

The recent eligibility changes will help reprioritise provision towards the poorest but they do not go far enough.  We will do more to secure contributions from employers, particularly those who recruit directly from overseas.  We know that migrants, and particularly skilled migrants, bring important economic advantages to England.  But we also know many only stay for a limited period before returning home, or perhaps migrating to another country. We have to prioritise mainstream funding on the poorest who are committed to remain but for whom English language is a significant barrier to getting or keeping work.

In September 2007, DIUS announced a new range of ESOL for Work qualifications. These offer shorter, more work-related English programmes of the type sought by employers. The qualifications were designed to increase flexibility and choice for employers, agencies and learners.  They are currently available at Entry Level 3 and Level 1. More information can be found at: www.dius.gov.uk/press/16-10-07.html

Working with all our partners, but especially Trades Union Congress (TUC), Confederation of British Industry (CBI) and Sector Skills Councils, DIUS is seeking to engage employers in ESOL to promote the benefits and encourage financial and in kind contributions.  Employers who have invested in, or facilitated ESOL for their staff, are starting to see meaningful returns: reduced turnover, improved communications and productivity, team-building, morale, health and safety compliance and customer service.

There are significant challenges to removing barriers to engagement for employers, especially for small and medium enterprises. DIUS has commissioned targeted research to help identify further options for engagement. One option is to use online learning to cater for the language requirements across various sectors and industries.  This could eventually be particularly useful for employers who recruit overseas.