Scottish National Party (SNP) ministers are under increasing pressure to initiate an independent investigation into the significant rise in students with additional support needs (ASN) in Scotland’s educational system. Data reveals that the number of pupils receiving additional support for learning (ASL) has surged from fewer than 33,000 in 2004 to over 284,000 in recent years, marking an almost nine-fold increase. This figure now represents more than 40 percent of the school population.
The Commission on School Reform (CSR), which operates under the think tank Enlighten, formerly known as Reform Scotland, has termed this situation “unsustainable.” Frank Lennon, a former headteacher and CSR member, emphasized that the current approach, while well-intentioned, has not undergone sufficient scrutiny. He stated, “The vastly increased demand for ASN is creating the single biggest post-pandemic pressure in Scottish schools, and the Government must now address it as a matter of great urgency.”
The context of this rise traces back to the Education (Additional Support for Learning) (Scotland) Act of 2004, which expanded the definition of ‘special’ educational needs to include any student requiring additional support, irrespective of a formal diagnosis. The CSR reports that most of the additional learning support is provided within mainstream classrooms, which has placed immense pressure on schools and educators.
Lennon calls for an independent expert committee to evaluate the reasons behind the increase in ASN. This includes examining whether parental pressure, changes in diagnostic criteria, or a genuine rise in needs are contributing factors. The committee should also investigate the effectiveness of current approaches in benefiting those with additional needs and their impact on other learners. Furthermore, the CSR advocates for an assessment of the presumption of mainstreaming and the fairness of examination arrangements.
The number of pupils requiring specific assessment arrangements, such as extended time or alternative accommodations, has also risen dramatically—from 62,505 in 2019 to 104,695 in 2024. Lennon noted that in primary schools, the situation is particularly dire, with class teachers shouldering much of the burden, often at the expense of their core teaching responsibilities.
Scottish Conservative education spokesman Miles Briggs has voiced concerns about the pressures faced by schools. He stated, “The enormous rise in pupils with additional support needs is putting our schools under intolerable strain, so it’s the duty of SNP ministers to examine the causes of it and the best solutions for all pupils.” Briggs criticized the SNP for failing to provide adequate training and support to teachers, who are increasingly overwhelmed by these demands.
Moreover, he pointed out that the current education secretary, Jenny Gilruth, along with her predecessors, has done little to investigate the reasons behind the surge in assessments for additional support. He emphasized the need for a thorough review of ASN practices, which he believes has not been adequately addressed.
In response to these criticisms, a spokesperson for the Scottish Government stated, “It is incorrect to suggest the Scottish Government has not acted to review and improve ASN provision since 2004.” The spokesperson highlighted that a review conducted by Angela Morgan in 2020 assessed the implementation of the Education (Additional Support for Learning) (Scotland) Act and resulted in the ASL action plan, aimed at enhancing support for educators and establishing parent support groups.
The government has also committed £28 million in funding for this year to bolster the ASN workforce, complementing a record expenditure of over £1 billion by local authorities on ASN in 2023-24. The Scottish Government maintains that the increase in ASN pupil numbers since 2004 reflects greater awareness and identification of additional support needs, which is a positive development.
Despite the government’s claims, critics argue that a comprehensive investigation into the rising numbers of pupils requiring support is essential. They urge that addressing these issues will not only benefit those with additional needs but also support the broader educational environment in Scotland.
