Additional Support for Learning action plan: final progress report

Introduction

We committed to publishing regular updates on our progress towards delivery of the actions set out in the Additional Support for Learning (ASL) Action Plan. To date, reports have been published in November 2021, November 2022 and November 2024 respectively.

This is the fourth and final Progress Report. The report sets out progress made towards delivery of the actions set out in the ASL Action Plan between November 2024 and March 2026 and has been developed in partnership with COSLA and ASL Project Board members. The report also provides an overview of actions that have not been delivered during this time, and where appropriate, the measures that will be taken to address these actions in the next Parliamentary Term. To complement the Progress Report, an up-dated ASL Action Plan will also be published at the same time. This will include final up-dates on the work that the ASL Project Board have undertaken to deliver on the specific actions agreed, to meet the recommendations set out in Angela Morgan’s ASL Review (2020).

Since its inception, the work of the ASL Project Board has been supported by advice from the ASL Network. The ASL Network is formed of more than 30 members from a wide range of Educational and third sector partners. They have worked collaboratively to give consideration, advice and support to the ASL Project Board on operational matters related to the implementation of ASL and inclusion policy.

It is important to acknowledge that during the reporting period for this final Progress Report, there has been growing public and political scrutiny of ASL policy implementation and delivery. Between July 2024 and January 2025, Audit Scotland undertook a review of ASL which looked at how well the Scottish Government and councils are addressing the demand for ASL in publicly funded primary, secondary and special schools. Audit Scotland’s final briefing paper was published on 27 February 2025, and a formal response was provided by the Director General Education and Justice, Scottish Government and the Chief Officer Children and Young People, COSLA on 27 June 2025. Scottish Government and COSLA Officials attended the Public Audit Committee on 7 May 2025 to given evidence in response to Audit Scotland’s findings.

The Children and Young People’s Commissioner Scotland published a report https://www.cypcs.org.uk/resources/this-is-our-lives-it-matters-a-lot-putting-childrens-rights-at-the-heart-of-education in March 2025, which focused on Scotland’s Education system as a whole and included a specific focus on ASL. A formal response from the Scottish Government was provided on 29 July 2025.

In addition to these formal reports, there have been two debates in the Scottish Parliament on ASL: a member’s business debate on motion S6M-15955 (11 March 2025), an opposition member’s debate on motion S6M-17524 (14 May 2025). In the latter debate, the Cabinet Secretary for Education and Skills committed to engaging in a round table, along with local government and COSLA, to talk about what more might be done to support additional support needs in our schools and a review of ASL. This review creates an opportunity to consider outstanding priorities from the current ASL Action Plan, but also to ensure that the foundations that have been put in place through the ASL Action Plan, and the progress that has been made to date, are embedded in future delivery.

Finally, the Programme for Government 2025-26, Building the best future for Scotland, set out what steps would be taken in the year ahead to support all pupils to achieve their potential.

The ASL Project Board have been cognisant of the wider recommendations made by the reports set out above, and the key issues raised within the Chamber, to ensure that the focus, alignment, and delivery of the ASL Action Plan, continues to deliver meaningful change and supports our vision to improve the experiences of all children and young people with an additional support need, including those accessing their entitlements to Early Learning and Childcare.

Project Board members acknowledge that progress has been made and significant steps have been taken to improve the experiences and outcomes of children and young people with an additional support need. They also recognise that partnership working between the Scottish Government, COSLA, ADES and key stakeholders has strengthened considerably, especially over the last 18 months. However, despite these improvements, they do acknowledge that the approach taken to date, has not yet achieved the cultural shift or scale of change envisaged and set out in the Morgan Review.

Project Board members recognise that achieving the aspirations of the Morgan Review requires system‑wide commitment that extends beyond education. Many of the barriers to making progress stem from wider structural, workforce, health, social care and community‑level factors. Securing coordinated buy‑in, prioritisation and appropriate resourcing across the whole public sector has proven difficult and remains a significant limiting factor in achieving sustained improvement.

Progress Report Structure

To ensure ease of reading and visibility of progress, the structure of this final Progress Report will be slightly different to previous reports. The Report sets out a summary of the progress made towards delivery of the remaining actions since November 2024, in pages 8-11. In pages 12-20, a more detailed up-date is provided on the three key areas of focus (set out in the third Progress Report), and pages 25-29 set out our intentions for the next stage of this work.

Summary of progress

The up-dated ASL Action Plan, sets out the full detail of progress made against each individual action since November 2024, as considered by the ASL Project Board. In this final phase of the ASL Project Board, there has been a consistent level of progress made towards delivering the actions set out in the ASL Action Plan. The table below highlights the total number of actions, those that have been completed and those that remain undelivered. Further details regarding those actions which have not been delivered is set out in pages 21-24.

The Project Management approach taken by the ASL Project Board has required the use of high‑level progress categories (‘action completed’, ‘action pending’ and ‘action incomplete’) to monitor delivery of the ASL Action Plan. However, many of the actions are inherently ongoing rather than one‑off tasks. Where an action has been marked as ‘completed’, this reflects that substantial progress has been made and strong foundations have been established for the work to continue embedding. It does not signal an end-point. Continued action by ASL Project Board members – within their respective organisations – will be essential to support sustained implementation and to ensure that these actions continue to translate into real‑world improvements.

Actions List- Count Log

Total number of actions: 76

Actions completed: 72

Actions still pending: 4

% of actions completed: 94.73%