Scottish Government

CHAPTER ONE: CONTEXTUAL OVERVIEW

Introduction

1.1 In 2004 the then Scottish Executive's Enterprise, Transport and Lifelong Learning Department ( ETLLD) commissioned the Centre for Research in Lifelong Learning ( CRLL) based at Glasgow Caledonian University to undertake an evaluation of Individual Learning Accounts Scotland ( ILA Scotland). This evaluation consists of interviews with learning providers and intermediary agencies associated with the ILA Scotland scheme ².

1.2 Recent changes to the strategic objectives of the Scottish Government to make Scotland wealthier and fairer, healthier, safer and stronger, smarter and greener ³ have clear implications for the ILA Scotland scheme. Within this context, the scheme has a key role to play in enabling learners and potential learners who may otherwise be unable to access learning opportunities to undertake study or training to leverage skills and increase their potential contribution to the knowledge economy.

1.3 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 is reflected in a number of reports and policy documents including the Scottish Parliament's Final Report into Lifelong Learning (Scottish Parliament, 2002), the then Scottish Executive's Lifelong Learning Strategy for Scotland - Life Through Learning Through Life (Scottish Executive, 2003a), the Partnership Agreement (Scottish Executive, 2003b) and more recently the Scottish Government's Skills Strategy, Skills for Scotland: A Lifelong Skills Strategy (Scottish Government, 2007). Within these documents, there is recognition of the barriers to participation, and the ILA scheme is seen as an important response to such issues.

1.4 Financial factors have been identified as one such potential barrier for learners and potential learners, in particular non-traditional learners (Scottish Funding Council, 2005). The Scottish Government has an ongoing commitment to enhancing student support through developing continued improvements to student finance models. Differences in financial support systems for tertiary education students were recently evaluated on an international level in the Funding for Learners Review (Scottish Executive, 2005a). Extensive information, advice and guidance ( IAG) on student finance is provided through the Funding, Support and Grants section of the Education and Training area of the Scottish Government website, which offers detailed support for groups such as adult learners, disabled students and those undertaking part-time study (Scottish Executive, 2007a).

1.5 The ILA Scotland scheme has been a key tool in addressing ongoing policy-based dialogue about improving access to and flexibility of learning opportunities. The concept of a model of entitlement to learning which is flexible and not time-bound, equitable, guaranteed and non-bureaucratic ⁴ is supported as a method of encouraging entry or re-entry and engagement in learning in post-16 education. Entitlement to learning has been identified as a way of empowering learners, increasing participation amongst 'non-traditional' groups through more flexible learning opportunities and fostering a sense of 'parity of esteem' between different types of learning within one overarching framework ( Enterprise and Lifelong Learning Committee, 2002). The Enterprise and Lifelong Learning Committee ( ELLC) also recommended that part-time learners should be entitled to the same (or pro-rata) fee arrangements as full-time learners.

1.6 Increasing overall participation in Higher Education ( HE) has meant an increase in the number of part-time students and learners who would benefit from such flexible learning pathways. In 2005-06, 40% of all students in HE in Scotland ⁵ and 89% of all students in Scotland's colleges ⁶ studied part-time. There is currently a clear differential in the financial support available for full-time and part-time students, with part-time students in further education ( FE) being eligible for means tested bursary support (for travel and study costs) and in HE having entitlement to limited support with study costs (Scottish Executive, 2005). Unaffordable costs of study can act as a significant barrier to full participation of part-time students in education (Callender et al, 2006), and 'the view that support for part-time students should be enhanced is widely held' ⁷.

1.7 Along with the financial assistance offered through ILA Scotland and the government fee waiver scheme, the Open University ( OU) has recently announced plans to offer financial help to part-time students who may otherwise be unable to access learning opportunities. This income based assistance (up to £200 for those earning between £15,700 and £30,000) has been developed in response to the recommendations of the Review of Funding of Learners (Scottish Executive, 2005c), as initially outlined in Life Through Learning Through Life, the Lifelong Learning Strategy for Scotland (Scottish Executive, 2003a). This OU development aims to complement existing aid for those on low incomes, such as single parents, mature students and students with disabilities (Cubie et al, 1999) and encourage flexible and equitable access to learning opportunities. This funding is for one year only and will be for session 2007-08.

1.8 The Leitch Review of Skills suggests that the 50% target for participation in HE prioritises full-time undergraduate study over part-time opportunities. Leitch recommends increased employer engagement and routes to continued professional development as potential resolutions to this, in line with the development of the core objective of the increased acquisition of 'world class skills' (Leitch, 2006).The Department for Innovation Universities and Skills in July 2007 proposed to introduce new 'skills accounts' in England (though these would be different from ILAs in Scotland in a number of ways)

1.9 The ILA scheme also acts as a mechanism through which learners may access IAG regarding learning opportunities from a number of sources which include amongst others: ILA Scotland helpline and website; intermediary agencies; learning providers and other learners. As such, the ILA Scotland scheme contributes to the Executive's commitment to the provision of clear, straightforward, accessible and user friendly IAG which is delivered efficiently, effectively and coherently by delivery partners, intermediaries and IAG practitioners (Scottish Executive, 2005b).

Background

The ILA Scotland scheme

1.10 Plans for the ILA scheme were first outlined in the Government Green Paper The Learning Age: A Renaissance for a New Britain (Department for Education and Employment, 1998) in which paths for movement towards individualized, self-directed and market driven lifelong learning were discussed. In Scotland, the scheme was adopted as 'a key part of the then Scottish Executive's drive to build a learning nation where people of all backgrounds can invest in their own learning throughout their lifetime' (Scottish Executive, 2000). On its launch in 2000, the original scheme (which operated UK-wide) enjoyed national uptake that exceeded initial forecasts, with 80% of participants in the former Scottish Executive-commissioned research agreeing that participation in the scheme had increased their knowledge and skills and 60% agreeing that participation in the scheme would encourage them to undertake further learning (Scottish Executive, 2002). Though generally hailed as a success, the scheme was suspended in 2001 as a result of some providers having been engaged in the mis-selling of ILAs. In Scotland plans were then made for the re-launch of an enhanced and more stable scheme which would 'take the best from the first ILA programme and remedy its shortcomings' (Scottish Executive, 2001).

1.11 The ILA Scotland scheme was re-launched in December 2004, as a more robust and sustainable successor to the original scheme. Like the ILA Scotland scheme, ILAs were also re-launched in Wales with a new scheme being introduced in summer 2003 ⁸.

1.12 An evaluation of the original ILA Scotland scheme has helped to shape the innovative nature of the re-launched scheme ⁹. The revised ILA Scotland scheme was launched in two phases. The first phase, ILA200 (previously named 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 offer (previously named 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. The ILA100 offer was expanded from summer 2006 to include a wide range of courses covering any subject, rather than restricted to ICT, up to SCQF Level 6 (although still limited to courses leading to qualifications/certification). The restriction that ICT courses for ILA200 must lead to formal qualifications or recognised certification has been removed.

1.13 Once established, ILA Scotland accounts have no specified expiry date and the funding entitlement is refreshed on an annual basis although account holders for ILA200 have to re-confirm their income level (if not, they revert to an ILA100 account). To access funds provided through the ILA Scotland scheme, all ILA learners must make a minimum contribution of £10 per learning episode.

1.14 Courses which are eligible for ILA funding are referred to as "Eligible Learning" and are detailed on the ILA Scotland website ¹⁰. Funding can be used towards a range of courses offered by approved learning providers from a variety of sectors which include voluntary or community providers, private training providers, colleges and universities.

1.15 However, certain types of courses are excluded from the ILA Scotland scheme. Such exclusions are:

• full time higher education
• advanced professional qualifications;
• work related and statutory training which is a requirement of the individuals employment, examples offered by ILA Scotland include Health and Safety or learning which is associated with core work duties;
• adult literacy and numeracy courses;
• leisure or sports activities not leading to a recognised qualification;
• secondary education.
• ICT training which does not lead to a recognised qualification or certificate
• lessons towards attaining driving licence category A or B
• courses given as a reward or an inducement by an employer
• private flying lessons (including fixed wing, rotary and paragliding)
• diving lessons (scuba, deep sea and high board)
• outward bound type courses

1.16 As we have noted, ILA Scotland has been subject to major changes aimed at improving the scheme's impact and effectiveness (see Table 1.1). The first widened the scope of the ILA100 offer to include ICT qualifications up to SCQF Level 6 or equivalent. The second amendment has broadened the offer to include access to a wide range of ILA approved learning.

Table 1.1: The ILA Scotland scheme¹¹

1.17 Changes have also been made to the ILA200 offer. The initial restriction that ICT courses must lead to formal qualifications or recognised certification has been removed. An additional change has recently been announced. On June 1 ^st 2007, the £15,000 individual income threshold was raised to £18,000 ¹³. Recent research has noted that many agencies have felt that the current cut off point was too low and should be raised (Scottish Executive, 2007c). This 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.

The learner application process

1.18 The ILA Scotland scheme comprises of a helpline through which learners are encouraged to enquire about the scheme via a dedicated telephone number staffed by advisors from learndirect scotland. Through the helpline, learners can check whether they are eligible, enquire about approved courses, and request an ILA application form. It was the intention that channelling the application process via a single entry point would provide clarity and also contribute to greater security within the application process.

1.19 Once learners have contacted the helpline and registered with the ILA Scotland scheme, they receive an application pack which contains a form, guidance on completing the form, and freepost envelope through which it is to be returned. This pack is also available in audio ( CD) format, Braille and large print format, or in any of the following languages: Chinese, Gaelic, Hindi, Punjabi and Urdu. The application form is partially completed on the basis of information the learner has already provided through their interaction with the helpline. The learner is responsible for completing the form although assistance through an intermediary or partner agency, for example an advice agency or community group, is encouraged.

1.20 After the form has been returned to ILA Scotland, and evidence of income assessed (where required), the learner receives a welcome pack confirming that they have registered with ILA Scotland. ILA Scotland states that the learner should receive this within two weeks of their application being received ¹⁴. In the welcome pack, the learner is provided with a guide to choosing courses and a learner account card with a specific ILA account reference number. The account number is required to book an ILA approved course. Like the application outlined in paragraph 1.19 above, the welcome pack is also available in alternative formats and languages.

Income assessment

1.21 Applicants for the ILA200 offer are requested to provide evidence of individual income alongside their application for inclusion in the scheme. The nature of evidence required varies depending on the individual learner's circumstances (please see Table 1.2). All forms that are required to be completed in order to evidence income are found within the application pack. Evidence of income should be returned to ILA Scotland along with the completed application form.

Table 1.2: Evidence of income required as part of ILA200 Scotland application process¹⁵

Booking ILA Scotland learning opportunities

1.22 Once a learner has selected a course from ILA approved courses or "eligible learning opportunities", the learner must then approach the provider and indicate their wish to access an ILA funded opportunity. The learner must then give their learner account number (on their learner account card) to the provider in order to reserve ILA Scotland funds. Following this course booking process, the learner receives confirmation of the booked course from ILA Scotland along with a 'learning token' which the learner must then use to "pay" for their learning. This is a paper confirmation which includes an additional reference number unique to that learner, the selected course and the selected provider and is submitted to the provider to be dated and validated. It is also suggested that the learner's £10 personal contribution should be collected at this point ¹⁶.

Individual Learning Accounts and the role of learning providers and intermediary agencies

1.23 ILA Scotland has prioritised working with both learning providers and intermediary agencies ( please see Annex 1 for a list of types of each). The important role that learning providers and intermediary agencies can play in disseminating information to learners and potential learners has been recognised by ILA Scotland. The ILA Scotland website has a dedicated 'Provider Zone' and 'Partner Zone', with tailored and bespoke information for each of these types of organisation. The Learning Provider Zone provides guidance on registration as a provider, quality assurance aspects of course delivery and operational aspects of the scheme, such as the Provider Opportunity Management Tool ( PROMT), the dedicated information management software which enables providers to add, edit and remove course information and bookings. The Partner Zone offers guidance and information on how to provide support for learners and potential learners, including examples of the nature of support that learners may require. The ILA Scotland scheme proposes to build on relationships already established between intermediary agencies and their particular client groups ¹⁷.

Aims and objectives of the evaluation

Overall aims

1.24 The overall aim of this study is 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

1.25 This final report details the findings of both research strands of the ILA Scotland evaluation - the Learning Provider Study and the Intermediary Study. Firstly, we provide an outline of the methodological approaches adopted in relation to both strands of the research. We then provide 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. Latterly we go on to summarise the key emerging issues from the research and consider their potential role in the long term successes of the scheme in the conclusions section.

1.26 Given the changes which have been introduced to the ILA Scotland scheme, after discussions between CRLL staff and the Scottish Government's Lifelong Learning Directorate ( LLD) it was agreed that it would be more sensible to view both the Learning Provider and Intermediary Studies in two phases, where half of the fieldwork undertaken would be conducted prior to the introduction of these changes and the other half would be administered after the changes were introduced. This second wave of fieldwork would be able to assess the impact of the recent changes to the scheme. Interim Reports on the Learning Provider Study and the Intermediary Study submitted by CRLL to the Executive in October 2006 acted as a baseline through which the impact of the recent changes introduced to the ILA Scotland scheme can be compared. Research findings summarising the key points form the research are available online (Scottish Executive, 2007b, 2007c) ¹⁸.