Researchers said progress has been made, but that the Department for Education and Skills now needs to decide if the scheme can meet revised targets.
The three-year study, produced for the department by York Consulting, concluded that young people who use the cards do not show evidence of better attitudes to learning.
It also states that targets for the number of teenagers using the card have not been met and that these were too high.
The card was introduced to encourage 16- to 19-year-olds to continue in education. By going to learning centres, users earn points that can then be exchanged for goods or services.
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