Included, Engaged and Involved Part 1: Improving Attendance in Scotland's Schools

Responding to long-term, persistent or complex absence

While many absences are short-term, there is growing concern about children and young people who are persistently absent.^[41] A considered and co-ordinated response is recommended in cases of long-term or persistent absence, particularly where there are complex underlying factors involved, such as children and young people returning to full-time education.

Schools should undertake a comprehensive assessment in collaboration with all relevant partners, including the team around the child, to understand the underlying reasons for the absence and ensure that appropriate support is identified and put in place. This should be aligned with existing staged intervention procedures, reflect the GIRFEC principles and follow child protection procedures as required. It is vital that this approach includes meaningful collaboration with children and young people, parents, school staff, and wider partners to ensure that individual needs are identified and addressed effectively.

Recognising and addressing both the underlying cause, and the impact of absence or disengagement, is essential to supporting a successful return to school. Education Scotland’s attendance and engagement toolkit may be useful in supporting this approach.

Some of the causes of long-term and persistent absence are discussed in the sections below.

Absence linked to school, home and community related issues

For some children and young people, long-term and persistent absence or low levels of engagement may reflect deeper issues related to their experiences at school, home or within the community. These challenges may include a combination of:

• school related factors such as difficulties with learning or specific subjects, conflict with staff or peers, experiences of bullying, mental health concerns, anxiety or unhappiness with course choices in secondary school. In some cases, children and young people may feel stigmatised by the way support is provided or how their personal information or appointments are managed. Some children and young people may also experience additional barriers to attendance due to concerns about privacy and confidentiality, or may feel unsafe within the school environment or at a heightened risk of prejudiced-based bullying
• home and community related factors such as challenging family circumstances (including domestic abuse), adversity and trauma, experience of care, abuse or neglect, and anxiety or mental health issues. It could also include involvement in risky or criminal activity, or influence from older friends who have left school

To address these complex and often interconnected barriers, schools should work collaboratively with children and young people, parents, staff and partners. This should align with the school’s approach to fostering a supportive, inclusive and equitable culture and be embedded within staged intervention procedures. Proactive strategies should be considered to identify and support children and young people who are vulnerable to low attendance to ensure that their needs are recognised and addressed.

To complement universal attendance and engagement strategies, schools may also wish to consider the following actions:

• promote positive peer relationships and consider opportunities for vulnerable children and young people to join positive peer groups and access role models through buddying and mentoring schemes, including mentoring schemes such as Mentors in Violence Prevention in Scottish Schools where appropriate
• ensure children and young people have a trusted adult in school to talk to about their concerns
• work closely with children and young people and their families to provide reassurance and appropriate support, particularly where anxiety about home circumstances affects attendance. This could include facilitating ways for children and young people to contact their family during the school day if needed
• in partnership with children and young people and staff, consider opportunities to engage children and young people through extracurricular activities, supporting them to build positive peer relationships
• involve partner agencies such as the police, community learning and development services and youth work where issues such as conflict between families or gangs and territorial issues spill over into school, to ensure the safety of all children and young people at school
• monitor entrances and exits to deter former pupils from lingering near the school
• ensure child protection procedures are robustly considered and appropriate action is taken when necessary

Absence relating to substance and alcohol use

For some children and young people, long-term and persistent absence may be linked to the use of drugs and alcohol. This can affect their school attendance in several ways. It can include being intoxicated or leaving school to become intoxicated, being hungover, being unable to function without using substances (addiction), trying to avoid others who may be involved in the supply of substances, or responding to the impact of a family member’s substance misuse.

Education, prevention and early intervention are central to addressing alcohol and substance use, in line with the Scottish Government’s approach to tackling the harm from drug and alcohol use and national guidance on responding to substance use in schools.

To support children and young people, schools should consider the following actions:

• embed substance use education in the curriculum to help children and young people understand the impact of alcohol and drugs on their life and health
• be alert to signs of concern, recognising that absence may be the first indicator of substance or alcohol use
• ensure responses to attendance linked to substance use are proportionate, non-stigmatising and in line with national guidance on responding to substance use in schools
• collaborate with other agencies such as the police, drugs services and youth services to improve information sharing and support effective prevention activity
• seek involvement of the school nurse to support children and young people through early identification, health education, and referral to appropriate services, as part of a coordinated, health-based approach
• provide access to counselling services or support from community groups or the third sector for children and young people affected by alcohol or substance use
• identify and support children and young people affected by a family member’s substance use, to safeguard their health and wellbeing, in the context of GIRFEC and the duties placed on education authorities to identify, provide for and review the additional support needs of their pupils
• consider the wider impact on the school community and ensure the safety of all children and young people where absence is linked to avoiding others involved in the supply of substances, involving the police where appropriate
• consider support and professional learning for staff to help them identify concerns early and provide appropriate, trauma-informed support

Children and young people in school but not attending classes

There has been a reported increase, particularly in secondary schools, of children and young people who register their attendance but then absent themselves from specific lessons or leave classrooms without permission, moving unsupervised around the school premises.^[42] This can disrupt learning, affect achievement, and negatively influence peers.

The reasons for in-school absence are often complex. Sometimes a child or young person may leave class because they feel overwhelmed, anxious, require additional support, or are finding it difficult to keep pace or engage with the curriculum. This can be particularly relevant for children and young people with additional support needs, including those experiencing emotionally based school avoidance (EBSA) or sensory overload. It is essential that schools have clear processes in place to identify and meet the needs of all children and young people, particularly those who are vulnerable to low attendance, to ensure that they feel safe and are supported to attend and engage in learning.

Other instances of in-school absence are more clearly linked to behavioural challenges, including children and young people leaving lessons, repeatedly avoiding particular classes, or spending time unsupervised in corridors or social spaces. While schools should maintain clear expectations around attendance and behaviour, it remains important to understand what any patterns could be communicating about the pupil’s experience. Schools should consider whether further support is required and assess whether there are personal issues or issues at school, home, or in the community which are contributing to this behaviour and take appropriate action, in partnership with parents and relevant multi-agency partners.^[43]

Reducing in-school absence requires a balance of clear expectations and supportive strategies. Schools should take a holistic approach that considers wellbeing, engagement and safeguarding. This approach should align with existing staged intervention procedures and include individualised, appropriate and supportive strategies, such as those suggested to address school, home or community related factors.

In addition, it is essential that schools provide clear and consistent messaging to children and young people about the expectation to attend every scheduled class. Schools can further support this by maintaining a visible staff presence and offering regular, positive follow-up to encourage attendance. At the same time, it is essential to support children and young people experiencing anxiety, EBSA, or other barriers by positively acknowledging their attendance and ensuring expectations are aligned with any agreed flexible arrangements within a Child’s Plan or staged intervention model.

To respond effectively to children and young people who do not attend class, schools may also consider a combination of the following strategies:

• reinforce clear boundaries and expectations around lesson attendance through assemblies, tutor time, and consistent communication with children and young people and parents
• increase visible staff presence in corridors and high-traffic areas during lesson transitions to encourage attendance and prompt arrival to classes
• reduce opportunities for opting out, for example ensuring children and young people return from break and lunch via supervised routes or designated entry points and by having clear, consistent procedures for leaving class during lessons that balance dignity and safeguarding with minimising misuse of this time
• work with children and young people and staff and where resources allow, explore improvements to social spaces, extracurricular activities, and opportunities to build positive peer relationships that encourage children and young people to remain on site during break and lunch times
• follow up promptly on every missed class, with same-day parental contact where patterns emerge
• use supportive or restorative conversations to help children and young people understand the impact of missed learning time on their progress, attainment and future opportunities
• re-engage children and young people through meaningful learning conversations that connect classroom learning to personal interests, skills and future goals
• where disengagement is subject-specific, consider whether the child or young person’s needs are being met within the curriculum offer, and explore appropriate adjustments, support with option choices, or additional guidance at key decision points (e.g. subject choices, pathways, and progression planning)
• consider appropriate consequences or incentives aligned to the school’s overall approach to relationships and behaviour and guidance on fostering a positive, inclusive and safe environment^[44]

Where this behaviour persists despite clear expectations and supportive intervention, schools should escalate through their staged intervention processes and in partnership with parents and other relevant services.

Providing for children and young people during long term illness

Education authorities have a legal duty^[45] to make education available at a place other than an educational establishment, for any pupil who is unable to attend school for a prolonged period due to ill health. This can include, for example, enabling them to continue with their education at home or within a hospital setting.

Alternative arrangements to provide education in these circumstances must be put in place without undue delay.^[46] The Scottish Government’s guidance on the education of children and young people unable to attend school due to ill health provides information to education authorities, hospitals and other services about their roles and responsibilities in these circumstances.

Where a child or young person is receiving appropriate educational provision away from their regular school, as a result of being absent due to health reasons, the school should record this as attendance. Where this provision is not in place, or if the child or young person is medically unable to undertake their education, this should be categorised as an authorised absence.

Schools should maintain contact with children, young people and their parents as appropriate. This is particularly important to support a smooth, needs-led return to school following a period of prolonged ill health, prioritising wellbeing and relationships and ensuring that any appropriate support can be put in place. Where appropriate, engagement with hospital education teams is also important to support a smooth transition back to school

Children or young people missing from education for extended periods

There are some circumstances in which a child or young person will be considered to be missing from education. This differs from children and young people who are persistently absent where the reason for the absence is usually known and includes:

• children of compulsory school age who are not on a school roll and are not receiving suitable education elsewhere, for example, at home, privately or at an alternative provision
• children and young people who are enrolled at a school but have not attended for a period of time. Typically, this will be if they have been absent for up to four weeks. However, this will be substantially less where there are welfare concerns

The most important factor for any missing child is safety. Should there be any concern that the child may be at risk, it is essential that local child protection procedures are followed. Further guidance is available from the National Guidance for Child Protection in Scotland 2021 - updated 2023.

If a child or young person cannot be located despite repeated efforts, school staff should refer to their local child protection guidance and safeguarding procedure. Staff knowledge of the child’s circumstances, family and community links can often help to locate them quickly. Sometimes, absence is due to moving home or changing schools. Prompt communication with the new school can ensure continuity of support.

School staff should ensure that particular sensitivity is given to children or young people from Gypsy Traveller communities. Further information is provided within the authorised absence section of the guidance. Other reasons for children to be missing from education for extended absence may include female genital mutilation, forced marriage, child sexual exploitation or criminal exploitation. Schools should ensure that staff are aware of these risks and have access to relevant professional learning to enable them to respond appropriately. Further information is provided in the National Guidance for Child Protection in Scotland.

Information about children missing from education, the actions that can be taken to locate them, and the role of the Children Missing from Education (Scotland) Service is available from the Scottish Government’s website at Children missing from education.

Measures for ensuring compliance

Parents have a legal duty to ensure their child attends school until he or she reaches school leaving age.^[47] Parents who have enrolled their child at a public school at any time are required to ensure their child attends, unless the education authority has consented to the withdrawal of their child from school.^[48]

The Scottish Government is committed to ensuring that efforts to support attendance and improve outcomes for children are progressed quickly and involve an appropriate and proportionate level of intervention. Measures for ensuring compliance are expensive processes which are time consuming and can lead to further unnecessary interventions into family life. In addition, there is no clear evidence that legal sanctions improve school attendance. However, these measures can be used when efforts to engage children and families in voluntary measures as described throughout this guidance to improve attendance have failed. Further details of measures can be found at Appendix 1.