According to the Cabinet Office's annual reports and accounts, a total of 57,609 young people took part in the programme for 15- to 17-year-olds during 2014.
Prime Minister David Cameron had previously pledged to provide 90,000 places in 2014 - meaning less than two thirds (64 per cent) of envisaged places were filled.
The Cabinet Office report reveals that the NCS Trust was tasked with filling a minimum of 60,000 places, but given a "target" of 80,000 participants. This target was missed by 22,391 places.
The 64 per cent of pledged places that were filled in 2014 is the lowest level in the four years the scheme has been running. In 2013, a total of 79.1 per cent of pledged places were filled (39,556 participants for 50,000 pledged places), and in 2012, a total of 86.7 per cent of places were filled (26,003 participants for 30,000 pledged places).
A spokeswoman for the NCS Trust said 65,590 places were commissioned in 2014.
“Each year we estimate how many additional young people will want to take part and commission enough places with our providers to ensure that everyone who wants a place can have one,” she said.
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