Scottish Government and council provision of additional support for learning (ASL) must be ‘fundamentally evaluated’, says watchdog

The provision of additional support for learning (ASL) in Highland schools must be “fundamentally rethought”, a Scotland-wide public spending watchdog audit has found.

The Audit Scotland briefing, tasked to look at how well the Scottish Government and councils are addressing the demand for ASL in publicly funded primary, secondary and special schools, was released on Thursday.

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Findings revealed that since legislation in 2004 to make additional support for learning more inclusive, there has been an eight-fold increase in pupils receiving forms of support — with 40 per cent of Scottish pupils currently receiving ASL.

The audit also revealed that all support is now delivered in mainstream classrooms, and it has become an “increasingly central part” of what teachers do.

Audit Scotland say that this has made it difficult to quantify the amount of spending on support provided through other public services such as the NHS.

Support is considered additional if it is provided differently from that generally provided for children of the same age in pre-school centres and schools.

But Audit Scotland say existing measures show a wide gap in outcomes for pupils receiving additional support compared with other pupils, including being more likely to be absent or excluded from school.

Recent data showed that pupils receiving ASL were around five times more likely to be excluded from school, and had a below average attendance rate (87 per cent, compared to 92 per cent for pupils not receiving ASL).

More appropriate ways of measuring the achievements of pupils who receive ASL are still to be developed, with progress noted as being “slow” in this area.

In reviewing outcomes, the audit report states, “The absence of a national measurement framework for pupils who have additional support needs poses a risk that the different, individual successes of pupils receiving ASL are marginalised or not recognised.”

Stephen Boyle, auditor general for Scotland, believes the Scottish Government has “failed to plan effectively for its inclusive approach to additional support for learning”.

He said: “Current gaps in data mean it is unclear whether all children’s right to have an education that fully develops their personality, talents and abilities is being met.

“The Scottish Government and councils urgently need better quality data to understand pupils’ additional support needs and the resources required to provide support to enable all pupils to reach their full potential.”

Ruth MacLeod, member of the Accounts Commission, says it is “critical” that pupils, parents and carers are involved in the process or rethinking planning and provision processes for ASL.

“Councils and the Scottish Government must fundamentally rethink how additional support for learning is planned and provided as a core part of Scotland’s school education,” she said.

“This includes reviewing how mainstream and special education is provided to meet current and future additional support needs and demands.

“It is critical they work with pupils, parents and carers and staff throughout this process.”

Scottish Labour education spokeswoman Pam Duncan-Glancy described the report as “damning”, adding: “This report confirms what parents and teachers already know – parents are constantly fighting for their children’s education and teachers are being worked to the bone, but they aren’t getting the support they need from the Government.

“People have been sounding the alarm for years on this issue, but the SNP is still in denial about the scale of the challenge and has no plan to fix it.”

Scottish Conservative education spokesman Miles Briggs said: “This damning verdict highlights that kids with additional support needs are the latest category of pupils being let down by an SNP Government with a dismal record on education.

“Just as the attainment gap between the most and least deprived has widened under John Swinney’s Government, this report identifies a gulf in outcomes between students who receive support and the rest.

“It’s a recurring theme of Audit Scotland reports that lack of planning lies at the heart of the SNP Government’s failure to deliver. That’s unacceptable, especially given their claims that education is a top priority.”

Scottish Liberal Democrat education spokesman Willie Rennie said: “It doesn’t take a genius to work out that this is a big problem for both pupils and teachers. It is no wonder that so many young people are disengaged, stressed and distracted.

“The SNP Government need to ensure additional support for learning is adequately supported and teachers feel supported to intervene on bad behaviour.”

A Scottish Government spokesman said: “All children and young people should receive support to reach their full potential and should not face barriers to their learning.

“Scotland’s inclusive approach to education is enshrined in the Additional Support for Learning Act (2004) and has a broad consensus of support.

“The Scottish Government welcomes Audit Scotland’s report. Ministers will engage with Audit Scotland to consider its recommendations carefully alongside local authorities, who carry the statutory responsibility for Additional Support for Learning in our schools.

“Since the ASL (Scotland) Act was enacted in 2004 the number of pupils in schools with ASN has increased to 40 per cent, which does present challenges.

“That’s why the 2025-26 budget includes an additional £29 million for ASN, building on the record investment of over £1 billion spent by local authorities in the last year alone.

“It is encouraging that school leaver destinations for pupils with ASN are at near-record levels, and we are seeing record achievement through curriculum for excellence.”

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