Investment in ESOL is needed to ensure learners meet language requirements

By Diana Sutton, Director at the Bell Foundation

Earlier this year, the government published its Immigration White Paper, which aimed to both reform the immigration system and address skills gaps.

The paper sets out new English language requirements for people coming to live and settle in the UK, including the requirement to reach an A1 level in English proficiency for family dependents and a B2 level for skilled workers. Linking English proficiency levels to rights of entry and settlement in the UK however overlooks some key facts.

First, 2021 Census data shows that one in three people who report not being able to speak English well or at all are British citizens, not migrants seeking to come to the UK.

According to the same data, nearly half (42%) of adults with low English proficiency were born in or have been resident in the UK for over ten years. This is a group whose needs have clearly been overlooked.

So, what might this mean for FE?

This data tells us that there is an urgent need to address the language learning needs of British citizens who don’t speak English well or at all. The white paper promises: “Across government, we will also make it easier for those already in the UK, working with partners in the Department of Education and MHCLG to access classes for English language lessons for those who need additional help”. There are however no details of any planned additional investment, or initiatives.

The white paper ignores a deeper crisis in adult English language education: as colleges, learners, and teachers know well, demand for provision massively outstrips both supply and investment in it. According to Government data, the demand for English for Speakers of Other Languages (ESOL) education is growing (up by 17% since 2021) but current provision is not reaching many of those who need it. Government data shows that there were 160,870 adult ESOL learners in England in 2024/25. This means that only 4% of all adults in the UK who speak English as a second or additional language are accessing ESOL classes.

These challenges are set against a backdrop of the overall declining budget for adult education. According to the Institute for Fiscal Studies, classroom-based adult education spending has reduced by two thirds since 2003/4, with a further 3% cut to adult skills funding announced for this coming academic year. This is on top of the threats that have come from some councils to scrap local ESOL provision.

This funding mismatch sits in stark contrast with the evidence, which tells us that investing in ESOL provision will pay dividends for both learners, communities and the public purse.

Much existing ESOL provision is not sufficient for the English language skills needed to access higher level work or for further study: 85% of learners leave ESOL provision with

Entry Level 1-3 qualifications (equivalent to A1-B1 levels in the Common European Framework of Reference for Languages). These are too low to successfully move on to mainstream vocational and educational provision and employment. This is often due to insufficient supply of higher level ESOL courses, with learners being offered Functional Skills English qualifications instead, which are not entirely appropriate to meet their specific learning needs.

If the new requirements are really to become reality, providers may need to ensure that their offer allows learners to achieve the B2 level in proficiency as required under the new Skilled Worker visa rules. Qualifications and curriculum reform, a stated priority of the Department of Education and Ofqual, will need to ensure that both the ESOL curriculum and the qualifications that certify that learners have achieved ESOL levels are up to date and reflect their language learning needs. This would empower learners to succeed in their daily lives, further studies and the workplace, as well as enabling their full participation in their local community and wider society.

Good practice

There are many FE providers who are already shining examples of how ESOL provision can still be impactful for their learners. As the sponsor of the Association of College’s Beacon Award for Excellence in ESOL, The Bell Foundation has celebrated those that offer holistic programmes which unlock social integration and progression to study and employment. We have been impressed by providers which have developed sports programmes that encourage community integration, and others that run Shakespeare workshops to help learners build language skills and a sense of belonging. This commitment to ESOL is made possible by investing in impactful partnerships, and securing funding to sustain and develop initiatives into the future.

Final thoughts

There is undoubtedly a case for smart public investment in ESOL that pays for itself by helping to address the UK’s current skills shortage and grow the economy. FE has a major role to play in this work; however, the Government must also meet its promise of enabling better access to English language learning. Read more on our calls for change: https://www.bell-foundation.org.uk/our-work/with-post-16-and-adults/evidence/