The Independent Living Skills (ILS) Curriculum in Further Education: Building a person-centred skills-based curriculum

Executive Summary

1. The further education (FE) sector has seen notable improvements to Independent Living Skills (ILS) provision since we last reported on it in 2017, especially in personalising learning and improving collaboration. However, variability in provision, inconsistent assessment and tracking, and weaknesses in quality assurance systems persist. In addition, curriculum offers are not consistently aligned to statutory responsibilities under the Additional Learning Needs and Education Tribunal (Wales) Act 2018 risking non-compliance and inconsistent outcomes for learners. This report calls for re-configuration of the ILS curriculum into a more coherent, aspirational, and outcome-focused model that better supports learners in preparing for fulfilling adult lives.
2. As of September 2024, 12 further education institutions (FEIs) in Wales, including Adult Learning Wales, provide ILS programmes for learners with ALN, an increase of one provider since Estyn’s 2017 thematic review. St David’s Catholic Sixth Form College remains the only FE institution not offering ILS provision. Around 1,700 learners completed ILS programmes in 2023-2024, reflecting growing demand.
3. ILS programmes serve learners with a range of needs including moderate to severe and profound learning difficulties and disabilities, autistic spectrum conditions, and social or mental health needs. They also cater for learners who have disrupted educational experiences and minimal qualifications. While some learners join at age 16, others enter aged 19 from special schools.  
4. Entry into ILS programmes is guided by college-level assessments, drawing on Individual Development Plans (IDP) and, occasionally, Education, Health and Care Plans for learners from England. Where provision is unsuitable, learners may be referred to independent specialist colleges.
5. Medr recognises the additional cost of supporting learners with learning difficulties and disabilities. ILS learners receive differentiated funding through course funding structures, and sometimes through additional learning support (ALS). Key information is tracked via the Lifelong Learning Wales Record (LLWR), which collects data on course completion and qualifications. There is no national collection of destination data for these learners.
6. The 2017 Estyn review identified a lack of robust assessment and tracking systems, overreliance on qualifications to measure progress, and inadequate focus on life skills, independence, and employability. This led to five key recommendations, prompting reforms including the adoption of the Recognising and Recording Progress and Achievement (RARPA) framework, a reduction in inappropriate accredited learning, and a move to personalised, skills-based curricula. While many improvements have been made, inconsistencies in quality remain, especially in initial assessments and IDP integration.
7. Pathways 1 and 2 serve learners with the most complex needs. However, inconsistency in interpreting learner profiles leads to variation in which learners access these pathways. For example, learners with a similar profile may end up on pathway 1, 2 or even in independent specialist colleges, dependant on the local offer. Some providers lack clarity on programme duration and learners’ expected outcomes, risking perceptions of the college providing day service-like activities rather than purposeful learning and skills development.
8. Pathway 3 accommodates the largest share of learners and meets a wide range of learning needs. It often includes learners with behavioural or emotional challenges, many of whom have not been identified as having ALN or who do not identify as being an ILS learner. Colleges have developed a breadth of curriculum offers including vocational tasters, employability training and personalised development of social and communication skills. The delivery, planning and assessment of these pathway 3 programmes varies considerably and often includes accredited learning. In some providers this is similar provision to the Jobs Growth Wales+ 16-19 employability programme, and meets the needs of similar learners. It is important to note that not all FEIs deliver Jobs Growth Wales+.
9. Pathway 4 provides supported internships. While the delivery model for this pathway has demonstrated life-changing potential for some learners, delivery inconsistencies, funding constraints, and the differing expectations of learners, parents and/or carers, colleges, supported employment agencies and employers limit its impact.
10. Quality assurance practices across FEIs are evolving but remain inconsistent both within and across different institutions. Strong providers align self-evaluation with learner achievement of targets, use robust observation processes, and involve learners and stakeholders. However, many colleges identify progress monitoring, especially for non-accredited learning, as a key area needing improvement.
11. Current programme specifications overemphasise learners’ impairments rather than their learning needs and goals. The four ‘pillars of learning’ (health and well-being, community inclusion, independent living, and employability) are inconsistently defined, not well understood and sometimes misapplied. Many view the existing terminology, including the term ‘ILS’, as lacking aspiration and clarity.
12. FEIs are improving transition support from schools, aided by growing collaboration. However, issues persist, including misaligned curricula, lack of consistency in IDP content, and learners entering college without an IDP.
13. Welsh-medium provision remains underdeveloped. Only two colleges routinely deliver Welsh-medium provision, and a very few other providers report being able to provide this if it is requested but rarely do. As a result, too often learners whose first language is Welsh are only able to access ILS provision through the medium of English.
14. While professional learning opportunities have expanded, they are inconsistently aligned to the specific demands of ILS teaching and assessment. Many colleges lack tailored professional development plans for ILS staff, and the evaluation of how professional learning impacts on learner outcomes remains limited.
15. ALN reform has increased collaborative working across stakeholders, although the transition from the Special Educational Needs (SEN) system has created challenges. IDPs are often delayed, incomplete, or misaligned with post-16 needs. The administrative burden of developing, maintaining and sharing IDPs on colleges has increased substantially, and inconsistencies in IDP quality hamper effective curriculum planning for meaningful, individualised skill development.