3. Annual Participation Measure for 16-19 year-olds 2025
North Ayrshire Council · 28 October 2025
Back to Cabinet — 28 October 2025 and its agenda
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1 NORTH AYRSHIRE COUNCIL 28 October 2025 Cabinet (Education) Title: Annual Participation Measure for 16-19 year-olds 2025 Purpose: To provide an overview of the recently published Annual Participation Measure which reports the proportion of 16-19 year-olds participating in education, training or employment throughout the last year. Recommendation: That Cabinet: a) Notes the content of the report and the progress made in improving this measure b) Supports the joint commitment across services and the continued partnership approach to making further improvements to this measure. 1. Executive Summary 1.1 1.1 The Annual Participation Measure (APM) reports on the proportion of 16–19-year-olds participating in education, training or employment over a whole year. The 2025 Annual Participation Measure for North Ayrshire is 92.5%, which lags slightly behind both the national figure and the average of the group of similar local authorities (as defined in the Local Government Benchmarking Framework (LGBF)). However, North Ayrshire’s performance has also been improving steadily over the last few years, and the current figure is the highest it has ever been. 1.2 Some of this most recent progress may be attributable to the introduction of a new secure online data-sharing platform, called the 16+ Participation Portal, which has facilitated better tracking and analysis of young people’s participation, enabling services more effectively to collaborate to plan supports, develop skills and signpost opportunities for all 16-24 years olds to improve positive destination outcomes for young people. We are hopeful that this will have an impact going forward and as it becomes more established. Partnership working has also been strengthened, particularly between the NAC Education Service, the Employability & Skills Team and Skills Development Scotland (SDS). 1.3 A range of actions are already in place, within and across Education and Employability teams, to support young people into positive and sustained destinations, ensuring that the Annual Participation Measure continues to improve. Future joint working, including developing consistent practices to maximise the effective use of the new 16+ Participation Portal, is also planned.
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2 2. Background 2.1 The Annual Participation Measure (APM) reports on the proportion of 16–19-year-olds participating in education, training or employment over a whole year (1st April-31st March). The report is published in August each year and is used to inform policy, planning and service delivery. The APM has been adopted in the Scottish Government’s National Performance Framework as the measure of young people’s participation. This has replaced the school leaver destination follow up as the source of the national indicator in the framework: “percentage of young adults (16–19-year- olds) participating in education, training or employment”. 2.2 The data which informs the APM comes from a wide range of sources and is coordinated by Skills Development Scotland (SDS) through the 16+ Participation Portal. This is a new secure online data-sharing platform, replacing the previous 16+ Data Hub. The new portal records information on post school destinations for all 16-24 years olds to provide information to improve positive destination outcomes for young people. SDS works in partnership with a number of organisations who contribute information to the system, including local authorities, schools, colleges, The Scottish Funding Council, the Student Awards Agency Scotland, the Department for Work and Pensions and HMRC. 2.3 The participation status of each young person is identified by combining the number of days spent in each status (participating, not participating or unconfirmed) between 1st April 2024 and 31st March 2025. Their overall headline classification is then defined as the heading under which they have spent the most days over that year. 2.4 The categories for participation status are: • Participating: includes those who are in school, higher education, further education, employment, modern apprenticeships, training and voluntary work. • Not Participating: those unemployed whether seeking or not seeking employment or training • Unconfirmed Status: information on individual not available for reporting. The recent inclusion of HMRC data has reduced the level of those with unconfirmed status. 2.5 The 2025 Annual Participation Measure for North Ayrshire is 92.5%, which lags slightly behind both the national figure and the average of the group of similar local authorities (as defined in the Local Government Benchmarking Framework (LGBF)). However, as illustrated in the graph below, North Ayrshire’s performance has been improving steadily, particularly over the last 5 years, with the current figure being the highest it has ever been in North Ayrshire. This year’s performance represents an increase of 0.8 percentage points on last year’s figure of 91.7%. 2.6 Nationally, the APM figure for 2024-25 is 93.3%, which represents 1.7 percentage points increase since 2018-19 and 0.6 percentage points increase since 2023-24. In the LGBF, North Ayrshire’s family of similar local authorities comprises: Dundee City, East Ayrshire, Glasgow City, Inverclyde, North Lanarkshire, West Dunbartonshire and the Western Isles. Over the last three years in particular, the gap has reduced between North Ayrshire and the rest of the family group, resulting in an improved relative position within the third quartile of all 32 local authorities.
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3 Chart 1: The Annual Participation Measure for North Ayrshire, compared to its LGBF family and the national performance (source: LGBF) 2.7 The APM also shows the percentage of 16-19 year-olds who are not participating or who are unconfirmed. Clearly, it is desirable for both of these figures to be a low as possible. For North Ayrshire, the current ‘Not Participating’ figure is 4% and the ‘Unconfirmed’ sits at 3.5%. Both figures are trending downwards. 2.8 The reduction in the proportion of ‘Unconfirmed’ status is partly the result of the incorporation of HMRC data, but it also reflects the work being done through the Local Employability Partnership (LEP) and the Youth Progression and Tracking group to identify positive destinations of young people and engage with those who have not yet secured a positive destination. This engagement with young people is delivered by our partners Barnardo’s as part of the Your Next Move Working North Ayrshire initiative to reduce unemployment and increase the employment rates for North Ayrshire. 2.9 We analyse the APM figures by age to ensure the work undertaken with each age group is effective and relevant, supporting young people into sustained positive destinations. As illustrated in the table below, the 16-year-old age group has been consistently above 99% since 2018, reflecting the targeted work undertaken by schools for S4 and S5 leavers (such as Team Around the Child meetings, SDS targeted activity and learner pathway planning). The age 17 group has decreased slightly by 0.7 percentage points since last year and is 0.3 percentage points below the 5-year average for this age group, making this a focus for future improvement work. Both the 18- and 19-year-old age groups have increased since 2023-24, by 2 percentage points and 2.6 percentage points respectively.
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4 Chart 2: The Annual Participation Measure for North Ayrshire over time, by age group (Source: APM publication) 2.10 Although the APM publication is annual, local authorities and schools can access their own data via the 16+ Participation Portal at any time and is updated monthly by all partners which facilitates the ongoing and specific targeting of young people to support partnership working to improve outcomes. Further information about how the 16+ Participation Portal works is included at Appendix 1. 2.11 The Portal serves as a central tool under the ‘Opportunities for All’ and ‘No One Left Behind’ policies which aim to offer a place in learning or training to every 16-19 not currently in education, training or employment and delivering the North Ayrshire young persons’ guarantee. Central to the creation of the shared dataset is the sharing of information to allow partners to identify in ‘real time’ what young people are doing throughout their 16-19 journeys. It also allows all partners to improve service delivery and provide a more tailored offer. 2.12 The Participation Portal can identify unconfirmed and unemployed young people, the commissioned engagement programme delivered by Barnardo’s, will visit young people in their homes and support them to engage in the range of services delivered across North Ayrshire. This has increased engagement and contributed to the improved outcomes reported in the APM. How the Education Service supports improvements in the APM 2.13 Schools work with young people, families and various partners to support an initial positive destination. This includes an improved and focused partnership with SDS who have advisers based within each secondary school to offer a range of holistic and targeted supports. In the latest published Insight figures, which were reported to Cabinet on 3 June 2025, 95.6% of school leavers in North Ayrshire went into an initial positive destination, continuing to be in line with the national figures and above the virtual comparator for all leavers, including the 20% most deprived. 2016 2017 2018 2019 2020 2021 2022 2023 2024 2025 Aged 16 98.8 98.8 99.4 99.3 99.4 99.1 99.3 99.1 99.3 99.3 Aged 17 93.8 93.7 93.9 94.4 93.2 93.8 95.4 96 95.5 94.8 Aged 18 87.5 89.2 88.8 87.7 88.5 86.3 88.5 90.8 88.7 90.7 Aged 19 80.6 80.7 82.9 80.9 81.4 80.9 79.7 82 82.7 85.3 75 80 85 90 95 100 Percentage of age group Annual Participation Measure over time as percentage of each age group Aged 16 Aged 17 Aged 18 Aged 19
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5 2.14 Schools carefully track pupils who intend to leave school (winter and summer leavers) and arrange contact with SDS if they do not already have a positive destination arranged. Guidance Teachers also work with young people on an individual basis to support with college applications, CV writing and to signpost wider post school supports such as Community Housing Advocacy Project (CHAP). For young people who fall into any of the vulnerable categories, Team Around the Child (TAC) meetings are arranged and SDS attend these meetings. This provides an opportunity to explore whether the intended destination is well-suited to the young person and sustainable. In these circumstances, the young person’s ongoing participation in their chosen destination is monitored closely, both by SDS and other partners. 2.15 Schools also fully support young people who wish to pursue Higher Education through UCAS information evenings for young people and parents and supporting the UCAS application process. Speakers from Universities and the Student Awards Agency Scotland (SAAS) are also invited to talk to PSE classes and Secondary Schools also engage with the widening access programmes such as REACH and Top Up (both of these are in partnership with Glasgow University). 2.16 Within each secondary school there is a Developing the Young Workforce (DYW) principal teacher. This post is enabled through partnership funding from Education and central government DYW grants. The DYW principal teacher works in close partnership with school-based SDS advisers and Ayrshire Chamber of Commerce who support employer engagement and a refreshed work experience programme. The DYW principal teacher also arranges events such as apprenticeship fairs giving young people access to a range of employers and the opportunity to ask questions and consider the options open to them post-school. Some schools also offer a mock interview process in conjunction with the Ayrshire Chamber of Commerce giving young people a realistic experience with authentic feedback. 2.17 North Ayrshire Schools benefit from a strong school-college partnership with Ayrshire College. This involves a blend of school-based courses to support attainment for young people and also support transition to full-time further education courses. Colleagues from Ayrshire College attend PSE classes throughout the senior phase and provide information on courses available as well as entry requirements, pathways and expectations of particular courses. They often attend parent briefing evenings giving relevant information and answering questions and concerns. There is strong pastoral support to facilitate smooth transitions; indeed, college staff now (from August 2025) spend allocated days in each secondary school to attend transition TAC meetings for all young people who fall into any vulnerable category. This improves attendance at college and supports young people to sustain courses, achieve qualifications and improve retention. How the Employability & Skills Team supports improvements in the APM 2.18 In 2018, No One Left Behind outlined the need for a better aligned and integrated employability support system. A partnership agreement between local authorities and Scottish Government supported the shared ambition to deliver transformational change in Scotland’s employability services. Local Employability Partnerships (LEPs) were established with responsibility for integration and alignment of local services, ensuring no one was left behind.
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6 2.19 The North Ayrshire Local Employability Partnership (LEP) includes representatives from the following organisations: • North Ayrshire Council Services: Employability and Skills; Business Development; Connected Communities; Education • DWP • NHS Ayrshire and Arran • Ayrshire College • Development Scotland • Ayrshire Chamber of Commerce, DYW Regional Lead, Ayrshire • TACT as a partner in the Third Sector Interface 2.20 The LEP Commissions services aligned to the local No One Left Behind delivery plan with a sharp focus on key priority groups, which include young people. Their aim is to deliver the Young Persons’ Guarantee of employment, training education or volunteering for all 16-24 years olds who have left school, ensure effective tracking arrangements are in place to reduce the numbers of unemployed and unconfirmed and increase participation rates by ensuring young people engage to prepare and progress to a positive destination. 2.21 Through the LEP and Your Next Move Working North Ayrshire, there are a range of interventions to engage and prepare young people for the world of work. Young people are supported by a dedicated keyworker throughout their journey towards and into employment. These interventions include ambition agreements, modern apprenticeships, sector-specific programmes, work experience, accredited vocational qualifications as well as tailored youth programmes delivered by a range of providers including Community Enterprise in Scotland Ltd., Ayrshire CEiS, Streetleague, Barnardo’s as well as dedicated Youth Hubs in communities throughout North Ayrshire. The youth programme is also extended to school leavers, which provides support for young people six months in advance of their school leaving date. 2.22 The launch of the 16+ Participation Portal in March has, for the first time, given individual schools access to their own data reports. Initial training was delivered by SDS to key central staff. NAC Education, Employability and SDS will jointly deliver a session to Head Teachers on 28th October 2025 to introduce new consistent approaches to updating data in the education management information system (SEEMIS) which feeds into the new 16+ Participation Portal. A key emphasis will be placed on schools recording anticipated leave dates, preferred routes and preferred occupations. Training will then be delivered to all schools to ensure the effective use of the portal. Next steps 2.23 The partnership working between the Employability and Skills Team and the Education Service has been further strengthened over the last year with more explicit collaboration across services on actions which support positive outcomes in terms of participation in employment, education and training. For the remainder of this academic session, our joint focus will include: • Jointly reviewing the data gathered through the Participation Portal to highlight strengths and areas for action • Supporting senior school leaders to continue to use and strengthen partnership working to support sustained and positive destinations for school leavers
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7 • Ensuring the secondary school curriculum provides updated, appropriate and relevant learner pathways through the broad general education, into the senior phase and beyond into positive destinations • Regularly reviewing the data gathered through the Participation Portal to highlight strengths and areas for action • Facilitating networks for senior school leaders and DYW principal teachers to help share effective practice across schools to maximise participation measure outcomes for all • Building on the partnership working with Ayrshire College to explore further joint delivery of courses • Supporting school staff with the use of the participation portal to help identify trends, patterns and key target groups • Discussing with school senior leaders the early identification of school leavers for session 2025-26 and the planned pathways towards positive destinations for that group • Working in partnership across Education and Employability and Skills to design effective supports towards positive destinations for target groups of school leavers (including a particular focus on care experienced learners, young carers, those living in the most deprived postcode areas and those with identified support needs.) 3. Proposals 3.1 It is proposed that Cabinet: Notes the content of the report and the progress made in improving this measure Supports the joint commitment across services and the continued partnership approach to making further improvements to this measure. 4. Implications/Socio-economic Duty Financial 4.1 None. Human Resources 4.2 None. Legal 4.3 None. Equality/Socio-economic 4.4 Targeted and specific interventions have been designed to ensure that all North Ayrshire school leavers benefit from support to secure ongoing participation in education, training, employment or volunteering. There is specific and dedicated support for care experienced young people and a wide range of interventions and opportunities for young people who are not engaging to access bespoke and tailored
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8 support. The Modern Apprenticeship programme has a ringfenced allocation for young people with disabilities or who are care experienced to ensure a minimum of 20% of the available opportunities are for these priority groups. Climate Change and Carbon 4.5 None. Key Priorities 4.6 This report aligns with the Council Plan 2023-28 strategic aim to “transition to a wellbeing economy, delivering prosperity, wellbeing and resilience for local people” and more specifically “improving educational attainment and achievement and closing the attainment gap” activities. Community Wealth Building 4.7 North Ayrshire’s work in relation to positive destinations supports North Ayrshire’s Community Wealth Building aspirations through providing high quality skilled workers who can contribute to the local economy. In addition, initiatives which contribute to this work provide a wealth of opportunities for local businesses and people seeking employment in North Ayrshire. Islands Communities Impact Assessment (ICIA) 4.8 None. United Nations Rights of the Child (UNCRC) 4.9 The work outlined in this paper supports the pursuance of UNCRC Article 28 (right to education) and Article 29 (goals of education) by ensuring an ongoing focus on the full development of young people’s talents and abilities. Consumer Duty 4.10 None. 5. Consultation 5.1 Improved collaboration with partners is illustrated in the report. Ongoing consultation takes place with young people to ensure the support being provided meets or exceeds their needs. Andrew McClelland Head of Service (Education) and Chief Education Officer For further information please contact Kathleen McCormick, Executive Manager (Education), on 01294 324443 or Laura Neill, Senior Manager (Employability and Skills) Background Papers 0
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16+ Information Sharing 16+ Participation Portal Reports contain information on young people tailored to Local Authorities and Colleges specific needs SEEMIS is the management information system used by all LA schools in Scotland to enter data on their pupils Our Partners SAAS focuses on Higher Education enrolments and withdrawals. DWP provides information on 18-24 year olds claiming benefits. SDS and SFC share data to determine the status of young people once they have left college What is the 16+ Participation Portal? How does it work? 16+ Participation portal is a secure web portal that partners can access to upload files (data for sharing) and to download 16+ Participation Portal reports for their Local Authority area or College Local Authorities + Colleges provide data on all current pupils/ students. In return, LAs and Colleges have access to 16+ Participation Portal reports from the shared data set, which also includes young people who used to attend school or college up to their 25th Birthday Scottish Funding CouncilColleges CSS is the Management Information System used by SDS staff to record engagement with young people. The shared data set is the information on young people that is shared between SDS and partners via the 16+ Participation Portal 16+ Participation Portal Reports LA’s SEEMiS CSS Colleges LA’s 16+ Participation Portal Appendix 1
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Why do we have the 16+ Participation Portal? Opportunities for All The Opportunities for All policy agenda is the Scottish Governments’ commitment to an offer of a place in learning or training to every 16-19 year old not in employment, education or training; The 16+ Participation Portal supports this ambition by helping identify those young people without an offer. Opportunities for All OfA The Participation Measure The Participation Measure was developed jointly between the Scottish Government and SDS and is used to provide the status of 16-19 year olds; it is published annually. Opportunities for All OfA
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Who is Involved? The Post-16 Education (Scotland) Act 2013 and two Government Frameworks (Data Practice, Policy and Practice) place a duty on key partners such as LAs, Colleges, SFC and SAAS to share information with SDS on all 16-24 year olds in Scotland. DWP are not part of the legislation but have data sharing arrangements in place. Effective partnership working and engagement are fundamental to the quality of information being shared through the 16+ Participation Portal. This supports young people, local partnerships and strategic planning. A wide range of colleagues from key partners bring together their individual requirements and responsibilities in a united and streamlined approach, for example, schools updating information, communications from the SDS Data Sharing team, partners planning their provision and advisers supporting young people. The combined support from all partners ensures young people are accessing the best opportunities. Key Audiences Information Sharing Partners SDS DWP SFC LAs SAAS Colleges Partnership Working • LA Departments • Colleges • Community Learning & Development • The Voluntary Sector • Social Workers • Schools • Head Teachers • Depute Head Teachers • Guidance Teachers • SDS colleagues • Scottish Goverment colleagues
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The Benefits From Skills Development Scotland, July 2024 Research shows participating in further learning/benefits beyond age 16 improves young people’s long-term career prospects. The 16+ Participation Portal identifies young people who are not participating in learning, training or work, allowing for focused and targeted service delivery by SDS and key partners. Information sharing enables effective ongoing tracking and monitoring of young people to ensure they have access to the relevant opportunities Appropriate interventions ensure young people receive effective support and services tailored to their needs Information sharing allows LAs and Colleges to be proactive and address potential issues which affect the support provided to young people Information sharing is pivotal to the OfA Agenda as it supports the transition of young people into further or higher education, employment and training Supporting Young People to Find Suitable Opportunities