1. Introduction 1.1 This report addresses the needs of learners who, because it is not their first language, need to develop skills in listening, speaking, reading and writing in English. These learners are currently included within the seven million people in this country who have difficulties with basic skills. However their primary learning need is not literacy or numeracy but English language skills. 1.2 A Fresh Start, the report of the working group on adult basic skills led by Sir Claus Moser, highlighted the need to address the issue of those learners whose first language is not English. The report recognised that they had related but quite distinct needs from those adults who are fluent English speakers but need to develop basic literacy and numeracy skills, and recommended that further specific consideration should be given to those needs. 1.3 As part of the Government's response to A Fresh Start, a working group was set up to consider and report on the particular needs of learners whose first language is not English. Terms of reference and membership of the working group are listed at Annex 1. The group met eight times between July 1999 and April 2000 with members consulting widely within their respective constituencies to ensure that this report reflects a wide representative cross-section of views. 1.4 One early issue the group needed to resolve was what this area of learning should be called. In schools the term used for English provision for those who do not speak it as a first language is 'English as an Additional Language' (EAL) and this was the term adopted by A Fresh Start. However the universally accepted term in post-16 education is 'English for speakers of other languages'. The group recognised that this difference in nomenclature could be confusing, particularly for learners. However it became apparent that the two terms were deeply embedded in their respective contexts and to attempt to change the position would both be very costly and could easily result in more confusion. Consequently we use the term 'English for speakers of other languages' (abbreviated to ESOL) throughout this report. The term ESOL is also widely used in most other English speaking countries.

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