1+2 languages policy: findings from the 2023 survey of local authorities

8. Conclusion

Overall, the results of this survey confirm the findings and trends established by the preceding 2020-21 survey and the progress towards language learning being embedded in the curriculum offered by schools.

The key finding of the survey is that nearly all primary (99%) and secondary schools (100%) that answered the survey deliver language learning, although neither sector has achieved 100% of full implementation according to the terms of the policy.

In the primary sector, the L2 picture is stable with the majority of schools reporting delivering a full entitlement from P1; with regards to the L3 delivery, we saw an increase in the number of schools providing it. This lies in sharp contrast to the provision of languages prior to the 2013 introduction of the 1+2 policy when language learning did not start before P5. French continues to be the most widely taught L2 (over 80%) although the percentages of schools offering Spanish, Gaelic (Learners) and German have all slightly increased. Spanish continues to be the most widely taught L3, however the gap between it and French, Scots, BSL, German and Chinese languages is not as large as the gap between French and other languages at L2. The primary schools' answers suggest an increasing appetite for less traditionally taught languages such as BSL and Scots in particular.

In the secondary sector, although all secondary schools reported teaching an L2, results showed a decrease of the full L2 entitlement, potentially due to an increasing number of schools allowing students to opt out of languages at the end of S2. The L3 implementation remains stable. Similar to the picture in primaries, French continues to be the most widely taught L2 although the percentages of schools offering Spanish, German, Gaelic and Italian have all increased. Spanish continues to be the most widely taught L3. In contrast to primary schools, languages offered as L3 in secondary schools show less diversity and are predominantly languages that can be taken at National Qualification level.

When asked about the approach to language teaching, schools answered that the L2 is mostly solely taught by the class teacher or another teacher from the school (primaries) and the teacher of language (secondaries). Only a minority of schools complement this teaching through the support of ‘native’ speakers (language assistants or members of the communities).

Special schools also reported teaching additional languages including the provision of languages / communications systems such as BSL, Makaton, PECS, and Signalong and various other Augmentative and Alternative Communication (AAC) systems and technologies.

The 1+2 policy was never intended to be a short-term initiative, but rather a change programme that would deliver a permanent transformation in the way languages are perceived and taught in schools. The original ambition was for the 1+2 policy to be fully implemented by 2021. Despite an understandable loss of momentum due to the impact of the pandemic on schools’ priorities, results continue to show there has been a substantial culture shift in how schools approach language learning since the 1+2 policy was first introduced. The 1+2 approach is now embedded in most primaries and secondaries throughout the BGE, and children starting school can now look forward to more opportunities to learn languages, and the advantages those bring, than their counterparts of only ten years ago.

Despite this progress, there will be variations in the methods and standards used to deliver language learning. From the initial implementation phase, schools have now transitioned to a consolidation phase. During this phase the Scottish Government will continue to engage and work with key stakeholders and delivery partners. We will focus on reaffirming the goals of the policy, having a common understanding of what a full implementation means and how to address the remaining barriers to this implementation and ensuring that all pupils have an equal opportunity to benefit from language learning.

Scottish Government

July 2024