1+2 languages policy: Findings from the 2024-25 survey of local authorities

6. Conclusion

At its inception in 2013, the 1+2 policy was intended to 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 and, despite an understandable loss of momentum due to the impact of the pandemic, successive surveys show there has been a substantial culture shift in how schools approach language learning since the policy was first introduced.

Overall, the results of this survey are broadly consistent with the findings and trends established by the preceding 2018-19, 2020-21 and 2022-23 surveys; the 1+2 approach is now embedded in most primaries and secondaries throughout the BGE; children are in general benefiting from their entitlements under the policy, whether in full or in part, and can look forward to more opportunities to learn languages and the advantages that learning languages brings compared to 2013.

We acknowledge that there are regional variations in the methods and resources used to deliver language learning – as well as national and local challenges associated with finance and workforce which can fundamentally impact delivery of language learning, including entitlements under 1+2. This 2024-25 Survey has in particular exposed a clear distinction between primary and secondary approaches to the L2, with “full” implementation rising in primary and falling in secondary.

We note the unique opportunity presented by the ongoing programme of curriculum, qualifications, and assessment reform to critically analyse and evaluate the 1+2 policy, identify areas for improvement, and ensure it is fully integrated with the languages curriculum.

Scottish Government will continue to engage and work with key stakeholders and delivery partners to reaffirm the goals of the policy, develop a common understanding of what full implementation means, and to investigate how to address the remaining barriers to support schools to achieve it, ensuring that all pupils have an equal opportunity to benefit from language learning. This work will be particularly vital in the context of our recent commitment to review the provision of modern languages in schools.

This survey represents a critical data point in the overall evidence base which helps to underpin and inform that work, and we are grateful to all participants who took the time to participate.

Scottish Government

June 2026