It’s like waiting for a bus – seven years with pretty much no concern for ESOL from government and their advisors, and suddenly we have two. Shortly before Christmas we had the Casey Review, which highlighted the lack of language skills and the barriers to integration this represents for individuals and communities, with the clear recommendation that government should “improv[e] English language provision through funding for community-based classes and appropriate prioritisation of adult skills budgets”. (At the same time, it suggested as well that there be some sort of “integration oath on arrival for immigrants intending to settle in Britain” which is all a bit Lord of the Rings to my mind, but there you go). Then just this week a cross-party group of MPs (an APPG: All Party Parliamentary Group) announced the imminent publication of an interim report on social integration that this time argues that speaking English is a “prerequisite for meaningful engagement with most British people” and therefore “all immigrants should be expected to have either learned English before coming to the UK or be enrolled in compulsory ESOL classes upon arrival.”
Hey ho. Here we go again. I used to be course tutor for a level 5 ESOL teacher training course, and one of the sessions I taught then was on the history of ESOL in the UK, with links to the various reports and recommendations for immigrants when it comes to learning English. So we had the follow up to the Moser Report (1999) called Breaking the Language Barriers in 2000, which observed ” Lack of fluency in English is likely to affect individuals’ ability to secure employment or advancement in the workplace, to gain benefit from further education, to access community and social services and to participate in community life”; we had the report of the team led by Ted Cantle following the race riots in Bradford & Oldham in 2001, recommending that “it will also be essential to agree some common elements of ‘nationhood’. This might revolve around key issues such as language and law.” (my italics); and we had More Than a Language published by what was then NIACE in 2006, which said “ESOL provision has a key role in promoting social inclusion.”
I’ve no doubt missed a few more, but the message for years, decades, even, has been that language is an essential aspect of social integration and should remain as such. It’s an argument which makes sense: language is integral to communication and therefore vital to enable interaction with social, political, cultural and economic systems. A part of me is a little sceptical, mind you: it seems a bit too “common sense”, stating the obvious, and very neat. Certainly language alone is not enough: as the APPG report argues, there is more to integration than simply learning English. And I have to admit to having a vested interest in any argument in favour of ESOL, as it is what I do for a living, after all. However, I think I’d be prepared to stand by the claim that learning language aids integration, although perhaps less than commentators (and ESOL teachers) would like to think. This is just a hunch, mind you, borne out of a wariness around “common sense” ideas.
It’s not all “same old, same old” however – in the APPG report they do actually make an explicit request for funding: “The APPG would, therefore, urge the government to markedly increase ESOL funding as well as explore innovative policy ideas to increase the availability and take-up of English language classes” although this has been quickly spun in the BBC article claiming that “The government said it was spending £20m on English language provision” – this may be true, but the APPG were arguing for an increase in this funding. And the APPG appears remarkably uncritical of the cuts to funding made over the last ten years or so. I’m wary of “innovative policy ideas” as in my experience “innovation” is usually a guarded synonym for “cut costs” or at least “do on the cheap” which, in this case, is likely to lead to yet another call for volunteers.
The biggest problem with both the Casey Review and the APPG report is that ultimately they are just reports. Nothing in them is guaranteed to become law, nor even be debated in parliament. Anyone remember “A New Approach to ESOL”, a civil service report from 2007? Admittedly that suffered from being written under one government then rejected under the next, but it’s pretty typical that reports like these get read, if they are lucky, and ignored. They are thousands of words and hundreds of civil service man hours which the government is free to ignore. “We’ve reviewed it,” they can say, “and maybe we might think about acting on them in a couple of years.” That doesn’t mean that they won’t do anything, of course, and it is good that work is being done at government level to support the needs of immigrant communities and their language learning. But still, whether anything comes if this remains to be seen.