Evaluation of community learning and development in Scotland: Detailed findings

How effective is the leadership of the local authority and their CLD partners in improving outcomes?

Profile of CLD

The varied roles that CLD staff, volunteers and organisations took on during the pandemic increased the visibility of CLD and its impact on individuals and communities. This increased the recognition, particularly by senior leaders in local authorities and community planning partnerships, to the role of CLD practitioners in supporting children, young people, adults and communities. This includes an increased understanding of the value of CLD’s contribution to meeting national and local priorities, for example supporting those most affected by poverty and disadvantage. All of this underscores the critical need for local authorities and their partners to capitalise on this momentum as they work to strengthen their governance and leadership.

Governance

The governance and resourcing of CLD have become increasingly complex in recent years. Local authorities have been continually restructuring their services in response to financial pressures and competing priorities. This restructuring, while necessary, has added complexity to how they manage CLD, affecting both governance and the allocation of resources.

Most CLD practitioners, both within local authorities and partner organisations, now operate under shared priorities as outlined in their CLD plans. Across Scotland, the leadership of CLD in most local authorities is strong. 

In the majority of local authorities, the governance of CLD is effective. However, poor governance in some areas has led to inefficiencies, duplication of effort and an inability to clearly demonstrate impact. Notably, a few local authorities are at risk of not fulfilling their statutory duties in relation to CLD. Whilst several local authorities have strengthened their governance since HM Inspectors last reported on this nationally in January 2020, others are now performing less well.

Involving communities in CLD planning

An ongoing challenge for many local authorities and their strategic CLD partners is that they are not sufficiently involving community stakeholders, such as young people, adult learners and community representatives, in the CLD planning process. There is a clear opportunity to strengthen governance through greater engagement of stakeholders.

However, there are examples of good practice: a minority of local authorities are leading the way in incorporating young people and community members into CLD planning at a strategic level. They are seeing the benefits, with improved provision and outcomes when learners and communities are actively involved and their views inform decisions.

Several local authorities have also enabled young people to participate in broader planning decisions beyond CLD, further enhancing service quality. However, the practice of including stakeholders as partners in strategic planning of CLD is not yet consistent across all local authorities. In particular, adult learners are under-represented in CLD planning at area and strategic level. To maximise the potential of CLD and improve outcomes across Scotland, it is essential that more local authorities actively involve their communities, including learners of all ages, in planning processes. 

Partnerships

In almost all local authorities, CLD is held in high regard by other services within the local authority and by many external partners. Most local authorities that are working well with their CLD partners have a clear vision for improving CLD provision.

Effective partnership working is crucial in supporting providers to adapt to changing needs and make the best use of often diminishing resources. Where there is a strong shared ownership of CLD priorities and actions across partners, the volume and quality of provision consistently improves.

However, well-organised approaches to partnership working are not yet consistent across all local authorities. Local authorities that have yet to develop and sustain strong partnerships are less likely to achieve the same level of provision and positive impacts for learners and communities as those with well-established collaborations.

In strong CLD partnerships, staff and volunteers are supported effectively to make a significant contribution to meeting community planning priorities. These include issues caused by poverty, inequality and poor mental health and wellbeing.

Resourcing

Over the past decade, local authority CLD resources have increasingly been directed towards supporting community planning partnership priorities, with a focus on those facing the greatest challenges. Whilst this targeted approach has enabled CLD staff and volunteers to work closely with individuals and communities in need, it has reduced the availability of wider, often more informal CLD provision that is often the first step for those new to accessing CLD provision. This is evident in the reduction in universal youth clubs and in many aspects of community-based adult learning opportunities.

There is also significant variability in the CLD services available across Scotland. While some of this variation is justified by local needs and demographics, much of it is driven by the resources available in different local authority areas rather than the actual demand. This disparity is particularly damaging in areas where CLD investment is low, leaving those with high levels of need without sufficient access to support or learning opportunities.

CLD services and partnerships are using external funding effectively to help sustain existing programmes and develop new ones, expanding the reach of CLD. This includes the use of Attainment Challenge Fund funding, which has allowed schools and local authorities to extend CLD provision and support for children and young people. However, the reliance on time-limited funding creates risks for the longer-term sustainability of CLD and the stability of staff development and job security.

Even where partners work together well to avoid duplication and share resources, meeting the wide range of needs of all children, young people, adult learners and communities remains a significant challenge.

Community-based adult learning provision in particular has been reduced to core areas such as numeracy and employability in many local authorities. This is leaving gaps in the broader range of programmes that provide an initial route into learning, including for those adults who have not previously had positive experiences of education.

One particular gap is in the provision of English for speakers of other languages support for refugees and new immigrants. While many local authorities and their partners are successfully using joint resources to increase English for speakers of other languages services, demand continues to significantly exceed supply in a minority of local authorities. This includes for those local authorities where the need is greatest.

Evaluation

There are strong examples of leaders who actively support staff and volunteers in self-evaluation, enabling them to reflect on their work and better understand the impact of their work on meeting the needs of their communities. Where staff and volunteers are supported consistently and encouraged to self-evaluate, improvements are more visible, and services are better aligned with community needs. However, only a minority of local authorities undertake self-evaluation regularly to drive continuous improvement.

Too few local authorities have put in place joint self-evaluation with their CLD partners. This lack of shared self-evaluation and reporting on progress has been a long-standing issue, repeatedly highlighted in previous national inspection reports. In a few local authorities, self-evaluation practices and shared approaches to evaluation, which were paused during the pandemic, have yet to be reinstated. As a result, joint self-evaluation remains inconsistent across Scotland and continues to be an area requiring significant improvement.

Positively, the majority of local authorities use qualitative feedback from partners, learners and communities well to inform their planning. They routinely produce and disseminate case studies showing the impact of CLD activities on individuals and groups. These case studies offer a rich picture of how CLD is making a meaningful difference in people’s lives and in communities.

Monitoring and reporting

High-quality reporting of CLD is evident in local authorities where the governance of CLD is strongest. In these local authorities, CLD leaders can clearly demonstrate progress towards meeting the priorities outlined in their CLD plan and against wider community planning priorities. However, a minority of local authorities do not yet have effective processes for reporting on CLD. Too often, the contributions of all partners towards meeting shared CLD priorities are not fully captured or reported. A minority of local authorities urgently need to set clear, measurable outcomes and targets in their CLD plans to improve how well they can monitor progress. 

Although the use of data to inform CLD planning is improving, enhancing the use of data and evaluative evidence to monitor and report on CLD is a focus for leaders and staff across Scotland. Whilst a few local authorities and their CLD partners are using shared data analysis well to guide the allocation of resources and inform decision-making, most local authorities need to strengthen how they use data to inform planning and monitor outcomes. 

Overall, the ability of CLD providers to fully understand and report on their collective impact is under-developed. The impact that CLD work has on wider local authority, community planning partnership and national priorities needs to be better captured, understood and reported.

There is no consistent approach to measuring CLD progress across Scotland. This limits how well local authorities and their partners can assess their progress against others to help them review their provision and identify areas requiring more attention. The development of a set of common key performance indicators by CLD Managers Scotland, the professional network of local authority managers, is a positive step. However, the data gathered is inconsistent, with for example only some including data from partners.

Building the workforce

The CLD workforce is diverse, including staff and volunteers with CLD qualifications, those who have other relevant qualifications, and individuals who have gained skills through experience. This workforce works across a wide range of settings. This includes local authorities, national and third sector organisations, community groups and other sectors where CLD methodologies expertise is used for engaging and supporting stakeholders and communities.

Most CLD staff and volunteers feel well-supported, empowered and valued by their managers to carry out their roles and responsibilities. Distributed leadership in a minority of CLD services and many partner organisations is leading to greater staff empowerment. Overall, CLD staff and volunteers working for local authorities and their CLD partners have access to good quality professional development opportunities.

Collaboration across local authority staff and partners enables the sharing of training and expertise. This supports staff and volunteers to improve their practice and confidently take on new aspects of work and responsibilities, including those programmes developed to meet changing community needs. 

An increasing number of local authorities have developed an effective ‘grow your own’ culture, supporting their workforce to gain relevant CLD awards and qualifications. This approach helps maintain staffing levels and supports them to sustain their services and meet growing demands. However, access to professional qualifications and pre-qualification professional development awards varies across Scotland depending on location and systems in place to support staff. Limited access to professional learning and qualifications can hinder recruitment and retention of staff. 

Volunteers continue to play an increasingly significant role in the delivery of CLD across Scotland. Skilled and active volunteers play an essential role in addressing local needs. Almost all local authority and third sector CLD services provide effective support to their volunteers. Experienced CLD leaders, both staff and long-standing volunteers, understand and take action to ensure routes for learners to become volunteers. 

Whilst the growth in services and organisations delivering CLD outcomes and using CLD methodologies is positive, it also presents challenges. It is not always clear how CLD qualified staff are supported to maintain their professional standards and practice.

Staff and volunteers who are not CLD-qualified but use CLD methodologies need continued support and guidance from experienced practitioners to ensure that they continually meet professional standards consistently. This includes in organisations that do not consider themselves to be CLD providers but that are delivering against CLD priorities. It also includes those local authorities who are taking a community development approach to involving communities in the delivery of services and where CLD, school and early years staff are coming together to share expertise and methodologies to better support children and young people and their families.

How well does the performance of the local authority and their CLD partners demonstrate positive impact?

Use of data to demonstrate impact

Almost all CLD providers have developed a strong understanding of their communities and the socio-economic context in which they operate. Increasingly, CLD partners are sharing data and other information to identify both existing and emerging needs more effectively. For example, CLD partners are increasingly using data to target provision towards addressing critical issues such as poverty and inequality.

In a few cases, targeted interventions have already resulted in tangible improvements in the lives of individuals and entire communities. Additionally, the majority of local authorities are seeing participation in many CLD programmes return to pre-pandemic levels. For example, the numbers of young people participating in youth groups, which had reduced significantly, is now steadily rising.    

However, there remains a challenge for many local authorities in fully integrating and sharing data, particularly to monitor progress, with CLD partners. This includes sharing data between CLD and schools, to demonstrate the achievements of young people. A few CLD partnerships do not yet fully capture data from the wide range of community organisations such as development trusts. This is limiting their ability to understand and collectively plan to meet community priorities and risks duplication of engagement with communities.

Success for all 

CLD staff and volunteers across Scotland support communities and learners of all ages effectively. The majority of CLD partnerships have a clear focus on addressing barriers to participation and reaching those most in need and those facing discrimination or disadvantage. In all local authorities, CLD teams have shifted their focus from universal services to targeted programmes that prioritise high-need groups such as new Scots, care-experienced young people and older adults.

Local authorities and their CLD partners, including community organisations, provide personal support to those affected by poverty. This is helping adults and families to access vital support services, to manage their finances better and to maximise incomes. However, only a minority of local authorities are able to demonstrate progress in helping communities to tackle poverty and the cost-of-living crisis.

CLD staff and volunteers are making a significant difference in supporting participants with their mental health and wellbeing. By building resilience, helping individuals develop strategies to manage their mental health, and reducing isolation through social engagement, for many participants CLD programmes are life-changing. For example, adults with long-term health challenges have gained and sustained employment through bespoke CLD support that raises their self-belief and self-worth.

In addition, there are examples of intergenerational and family learning programmes impacting positively on both children’s education and family dynamics. Most participants receive timely support from CLD staff and volunteers, allowing them to make positive changes in their lives. As a result of engaging in CLD learning opportunities, participants say they are becoming more resilient and better equipped to cope with life changes.

Overall, CLD staff and volunteers are successful in creating inclusive, welcoming and learner-driven provision. This is supporting participants living in communities affected by poverty and disadvantage to achieve and progress. However, there are significant resourcing challenges. Many communities face high demand for services, but local authorities and their partners struggle with not enough staff and volunteer hours to meet these needs.

The importance of volunteers

Volunteers make a significant difference to the reach and quality of CLD provision across Scotland. Through their work in local authorities, public services, voluntary organisations and community groups, volunteers provide invaluable support to children, young people and adult learners. For example, young volunteers help to ensure that the voices of children and young people are heard in local authority-wide decision-making, while many community events that increase cohesion are delivered entirely by volunteers.

Volunteers in CLD come from diverse backgrounds, with many having started as participants in CLD activities. As they transition into volunteer roles and start to contribute to supporting others with their learning and towards their communities developing, many find their confidence and wellbeing improves. This personal growth reflects the value of volunteering, not only for the beneficiaries but also for the volunteers themselves.

Across Scotland, volunteer-led organisations increase the sustainability of communities by delivering large-scale projects, such as building and running facilities. In many local authorities, volunteers have successfully taken over and now manage community assets, further embedding themselves in local development.

Community organisations, including development trusts, are delivering a wide range of services such as community shops, improving pathways and learning programmes for all ages. Whilst improving local facilities and services, many are also supporting other community groups in their development.

Strong examples exist of local authorities working well with community organisations to address issues such as extreme weather events. In many areas, volunteers are directly influencing and shaping local services to better meet the needs of their communities. However, despite their significant contributions, the impact of volunteers in local communities is not fully understood, recognised or monitored. This includes their significant contributions to the education system and wider community developments in Scotland.

Skills for learning life and work 

Through a range of CLD programmes, learners of all ages are gaining skills that support their learning, lives and careers. CLD providers offer a wide range of learning activities and support, from one-day events and short courses to long-term individual support.

CLD programmes are highly person-centred, ensuring that each participant develops skills that are relevant to their individual goals and aspirations. In most cases, these programmes help children, young people and adults to build confidence and to apply their skills across different situations in their lives. Most are gaining knowledge and life skills that help them to consider their next steps and, where relevant, their career aspirations. CLD staff and volunteers also help children, young people and adults gain awards or qualifications. 

Across most local authorities, CLD partners actively involve children, young people, adult learners and community members in designing learning programmes. Learner progress is often tracked through individual or group learning plans. A few local authorities still need to make better use of these tools to help participants understand and build on their progress.

There is growing, albeit limited, evidence that joint work between school and CLD staff is helping children and young people to improve school attendance and attainment. In the majority of local authorities, CLD partners work closely with school staff to deliver support to young people. This includes young people on flexible learning pathways, those with low levels of attendance and those exhibiting negative behaviours or who are isolated within school.

CLD staff support young people well to gain strategies to manage their behaviour, build friendships and enjoy learning. In addition, in the local authorities with effective family learning programmes, parents and carers report increased confidence in supporting their children’s learning, leading to improvements in children’s attendance and attainment.

Over recent years, CLD partners have become more involved in supporting, delivering and leading learning programmes focused on employability. By taking a person-centred and holistic approach, CLD is proving successful in helping some individuals who are furthest from the labour market progress into training, volunteering and employment. For example, there are CLD programmes which help those prisoners recently paroled to gain literacy and numeracy skills, and projects which mentor adults who have limited work experience to build skills and progress to volunteer.   

CLD provision is making a significant difference to those gaining core skills including literacy, numeracy, English language and digital inclusion. In the majority of local authorities, through the support of Multiply funding from the UK government’s shared prosperity fund, the number of adult learners improving their numeracy and financial management skills is increasing.

English for speakers of other languages learners are gaining valuable language skills as well as knowledge of Scottish culture and systems. They are now better able to participate in their communities and access support that they need. Gaelic learning for young people and adults features prominently in a few local authorities, as part of Gaelic Learning plans. This is helping participants to understand more about their area’s culture and history as well as learn the Gaelic language.

Achievement

In the majority of local authorities, CLD partners work effectively to ensure that learning pathways for participants are clear and aligned with their goals and interests. This is supporting learners of all ages to make progress towards, and often achieve, their personal aims and ambitions. In the majority of local authorities, well-defined learning pathways guide adult learners from entry-level learning to more advanced accredited qualifications on the Scottish Credit and Qualifications Framework. However, in a few local authorities, young people and adults are not always clear how they can progress in their learning, and learning pathways need to be developed further to provide clearer routes to achievement.

Many young people are developing important skills, such as team working, communication and leadership, by participating in a variety CLD activities. These skills are often recognised through nationally accredited awards such as the Duke of Edinburgh’s Award, Saltire Awards and Youth Achievement awards. Gaining these skills and awards supports young people to recognise and have more confidence in their own abilities and motivates them to continue developing their skills.

CLD partners are aware of the need to better recognise and track the achievements and skills young people are developing both within and outwith school. Whilst there are a few positive examples of CLD staff working with schools effectively to capture, celebrate and build on the achievements of young people, this is not yet happening across all local authorities. A key challenge for Scottish education is ensuring that the skills young people gain through CLD activities are fully recognised and valued as part of their overall development and achievement.

Ensuring that all CLD learners understand and celebrate the progress they are making remains a challenge. There is also a pressing need to increase opportunities for learners of all ages to gain recognised awards or other formal accreditation for their achievements. By expanding access to accredited qualifications, CLD can ensure that learners not only gain valuable skills but also have the credentials to support their further education, employment and personal development.