Committee Reports::Report No. 08 - Report on Childcare::22 November, 2005::Report


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Committee Reports > List of Committees > Joint > 2005 > Committee on Justice, Equality, Defence and Women's Rights > Report No. 08 - Report on Childcare

Tithe an Oireachtais

An Comhchoiste um Dhlí agus Ceart, Comhionannas, Cosaint agus Cearta na mBan

Tuarascáil ar Chúram Leanaí

Samhain 2005

Houses of the Oireachtas

Joint Committee on Justice, Equality, Defence and Women’s Rights

Report on Childcare

November 2005

Table of Contents

1.	Chairman’s Preface
2.	Members of the Joint Committee
3.	Rapporteur’s Foreword	1
4.	Chapters
	A)Introduction	3
	B)Childcare in Ireland-Current Provisions	4
	C)An Integrated Government Strategy	7
	D)Ensuring Choice	10
	E)Ensuring Accessibility	15
	F)Ensuring Quality	20
	G)Funding	23
Recommendations of the Joint Committee		25
Appendices
Appendix 1. Recommendations
Appendix 2. List of members of the Joint Committee
Appendix 3. Orders of Reference of the Joint Committee
Appendix 4. Details of Hearings

Chairman’s Preface.

The Joint Committee on Justice, Equality, Defence and Women’s Rights chaired by Seán Ardagh T.D., decided to conduct a review of childcare in Ireland with a view to determining what measures are needed to develop a quality childcare infrastructure in Ireland.

The review arose partly from the Committee’s ongoing work to ensure equal opportunities for all Irish citizens and the clear need to establish a workable, flexible model of childcare in Ireland.

Having appointed Jim O’Keeffe T.D.as Rapporteur to the Joint Committee on the matter, the Joint Committee planned a series of hearings which were held in April and October 2005. Representatives from the leading childcare groups were invited to appear before the Joint Committee during the hearings process.

Having considered the draft report submitted, the Joint Committee has now completed its Report. In the report the existing childcare provisions are examined and recommendations are made on how these can be developed and what further provisions are necessary to establish a comprehensive system of childcare in Ireland for the twenty-first century. The Report reflects the views expressed to the Committee during its deliberations in the three days of hearings which were held and the unanimous recommendations of the Committee.

We commend this Report to the Houses of the Oireachtas.

	Signed

	Mr. Seán Ardagh T.D.,
	Chairperson of the Joint Committee on Justice, Equality ,Defence and Women’s Rights.
	22^nd November 2005.

Members of the Joint Committee on Justice, Equality, Defence and Women’s Rights

Deputies


Séan Ardagh (FF)	Maire Hoctor (FF)	Seán O Fearghaíl (FF)	Charlie O’Connor (FF)	Denis O’Donovan (FF)	Peter Power (FF)

(Fianna Fáil Deputies)


Jim O’Keeffe (FG)	Gerard Murphy (FG)	Joe Costello (Lab)	Breeda Moynihan-Cronin (Lab)	Finian McGrath (Techn/Ind)
(Fine Gael Deputies)		(Labour Party Deputies)		(Tech/Group)

Senators


Tony Kett (FF)	Jim Walsh (FF)	Maurice Cummins (FG)	Joanna Tuffy (Lab)

Rapporteur’s Foreword

Childcare in Ireland

Adequate and affordable childcare has been a real concern for Irish parents for some time although it has only recently risen to prominence on the political agenda. At present, the Irish childcare service is largely provided on an informal basis and does not adequately meet the needs of parents. Childcare is too costly for some parents and not available at all for others obliging some to leave the workforce. In other cases parents who would like to care for their child at home are unable to do so due to current employment practices. We have reached the stage where many parents cannot afford to provide their children with the quality of care that they would wish. This situation is placing Irish families under significant strain and reinforces cycles of disadvantage and inequality. While initial progress has been made there is across-the-board support for the full implementation of policies that will relieve the burden of childcare.

Traditionally, childcare has been viewed as an adjunct to employment policies but we are now witnessing a fundamental shift in thinking which recognises childcare as a highly complex and important issue in its own right. A wealth of international research indicates that the early years of a child’s life are crucial to their later cognitive, emotional and social development. Furthermore, these benefits are transferred to the family and to the wider community. Thus childcare is not just about employment. It is not even simply about educating children. It transcends any single issue and impacts upon Irish society as a whole. Therefore childcare demands a holistic approach to policy which recognises the rights of both parents and children.

There is now a developing national consensus that childcare must be placed at centre stage and is deserving of significant financial investment. Many European countries have developed, or are in the process of developing, sophisticated childcare infrastructures and the benefits are clear for all to see. Evidence from these countries shows that investment into children at an early stage pays off both socially and economically in the long-term.

Ireland needs a state of the art childcare infrastructure that is accessible to all citizens. Realistically, the move from the current provision to a sophisticated service will only be achieved by adopting a long-term strategic approach and by carefully targeted increases in funding. Now, with the benefit of international research and the experiences of other countries, we are well positioned to put in place policies that can benefit the Irish people for many years to come.

The Joint Committee on Justice, Equality, Defence and Women’s Rights held a series of hearings over three days during which contributions were made by many of the leading players in childcare. This Report strongly reflects the views expressed to the Committee during its deliberations and puts forward a holistic, consensus-based approach. It is clear that childcare is now a central political issue but it is also an issue that goes beyond party politics. In recognition of this fact the Joint Committee has put together broad recommendations for future policy which have the benefit of all party support.

Invaluable assistance in the preparation of the Report was provided by Mr Redmond O Connell who acted as my research assistant. In addition, Mr Ray Treacy and his staff in the Committee Secretariat worked most courteously to facilitate the Joint Committee in its tight schedule.

Jim O’Keeffe T.D.

Rapporteur for the Joint Committee

A) Introduction

As part of its ongoing work on ensuring equal opportunities for Irish citizens, the Joint Committee on Justice, Equality, Defence and Women’s Rights conducted a review of the childcare system in Ireland. In light of recent reports on early childhood care and education the Joint Committee examined the measures needed to develop a quality childcare infrastructure in Ireland. Deputy Jim O’Keeffe was appointed as rapporteur to the Joint Committee. Three days of oral hearings were conducted at which invited parties addressed the Joint Committee.

The Joint Committee hearings were held on 20^th April, 12^th October and 19^th October. The Committee received submissions from interested groups and individuals, including representatives from the Department of Justice, Equality and Law Reform, Area Development Management Limited, local child care providers, the National Women’s Council of Ireland, the chairperson and project team chair of the National Economic and Social Forum, Barnardos, national representatives from the County and City Child Care Committees, the National Children’s Nurseries Association, Childminding Ireland, the Early Childhood Organisation and Cúram.

There was a clear consensus at these hearings that the issue of child care requires the development of a long-term strategy that can ensure a high quality service accessible to all children in Ireland. The purpose of this report is to put forward a series of recommendations based on careful consideration of each of the written and oral submissions received by the joint committee.

B) Childcare in Ireland — current provisions

The issue of childcare has become increasingly prominent in recent years as economic and social changes have transformed Irish society. Today, there is growing recognition that childcare is a complex issue that impacts upon fundamental societal concerns such as education, development, poverty and equality.

Labour market participation for women has been recognised as a key instrument to reduce gender inequalities and since 1995 the number of women working outside the home has risen from 483,000 to 771,000 in 2004, an increase of 60%. This welcome increase in labour force equality has been accompanied by an increased demand for childcare services to support parents working outside the home. Central Statistics Office figures (2002) indicate that over 73,000 (42.5%) of all families with pre-school children and 67,500 (25.3%) of families with primary school aged children, regularly rely on non-parental childcare arrangements during normal working hours. Childcare has until recently developed quite informally with a heavy reliance on the support of grandparents and childminders caring for children in their own homes. CSO statistics show that childminding or family home-based childcare, is still by far the largest sub-sector in Ireland, accounting for 80% of childcare places, for infants, pre school and school-going children. The remaining 20% of parents access private and community childcare services which can take many forms including sessional services, full day services, employer based childcare, after school care and the Early Start Programme.

At present the Department of Justice, Equality and Law Reform has lead responsibility for co-ordinating the delivery of childcare services for the specific purpose of supporting parents who are active in the labour market or who are preparing for labour market participation through the implementation of the Equal Opportunities Child Care Programme (EOCP). The EOCP delivers its child care measures through the regional operational programmes under the NDP 2000-2006, with co-funding from the EU and the Irish Government. In 2000, 33 City and County Child Care Committees (CCC) were established in order to deliver local childcare strategies. Each CCC receives funding from the EOCP for the operation of the committee allowing them to employ staff and implement actions contained in their strategic plans. By the end of 2004 the EOCP had created 24,600 new centre-based childcare places and at present, the EOCP supports approximately 750 community-based child care services with staffing grants.

Despite these clear improvements, current provision does not yet address all of the demand at local level. Childcare services in Ireland have the capacity to support only 10-15% of children in the 0-3 age group and have the second lowest rate of coverage in Europe for 3-6 year olds according to a recent OECD study of childcare in Ireland. It is estimated that 200,000 working mothers need childcare. According to the OECD 15,000 new places per year would need to be supplied to meet this demand. These figures confirm the informal nature of childcare and indicate that at present formal childcare services are available to only a minority of parents in Ireland. With the rapid development of new housing projects and commuter belt communities, the traditional reliance on family networks is being replaced by a greater demand for formal childcare services which must be addressed.

Furthermore the OECD has estimated that childcare costs account for approximately 30% of disposable family income compared with the EU average of 8%. Thus parents who access childcare do so at considerable cost. This situation places families under significant financial pressure and is militating against efforts to reduce poverty and inequalities in Irish society. It is important to note however that the financial strain of caring for children is being felt by all social classes and not solely by those on lower income.

A key point of agreement amongst all contributors to the Joint Committee was that there has tended to be an excessive focus on childcare as a service for working mothers. With over 50% of mothers with children under-15 now working outside the home more attention is being paid to the developmental influence of childcare experiences. In her submission to the Joint Committee Dr. Maureen Gaffney, chairperson of the NESF noted that presently:

“when the focus is placed on early childcare and education, it is almost exclusively on a service for working mothers”

Ms Sylda Langford of the Department of Justice noted that in many other European countries, where childcare services also developed as a result of labour demands, once childcare infrastructures were put in place there was a progression towards viewing childcare as a social support mechanism and an important developmental service. There is now extensive research demonstrating the influence of the first few years of a child’s life in determining whether he or she will remain in school, access employment and proceed to third level education. Ms Irene Gunning of the Early Childhood Organisation summarised these findings:

“International evidence from controlled evaluation studies show that childcare has important measurable and lasting beneficial effects on the education, health and welfare of children and shows children can benefit socially, emotionally and intellectually from experiences in good quality childcare”.

A recent report by the National Economic and Social Forum (NESF, 2005) on early childhood care and education provides a detailed discussion of research to date which highlights the critical importance of receiving quality care in early life. Thus childcare is not a short-term solution for parents in the workforce but is rather a major contributor to child developmental trajectories and thus has an impact on society as a whole.

With this growing awareness of the importance of childhood care there is now recognition of the need to develop a comprehensive policy on childcare which places the child at its heart. Thus the emphasis in childcare policy should be on providing the best service for children and empowering parents to make their own choices. This would include supporting parents irrespective of their decision to work or to stay at home, drawing the childcare system into a social inclusion framework and ensuring that services provided are of a high quality.

Recommendation 1. That there should be a major focus on childcare in Ireland and that the central focus should be on early childcare and an early education service for children as well as an employment support for parents.

C) An Integrated Government Strategy

There is now consensus, reflected by numerous reports and international research, that the issue of childcare can only be addressed by a long-term and holistic child-centred strategy. While childcare has proved to be a key measure in promoting women’s economic independence there is agreement that an effective childcare strategy must take a far broader view of this complex issue. A truly effective childcare strategy cannot be developed without giving equal consideration to parents’ and children’s rights, disadvantage, inequality, child development and education. In her submission to the Joint Committee Ms Sylda Langford of the Department of Justice, Equality and Law Reform observed that:

“Ireland needs child-centred child care services. It is necessary to set out a programme for which the needs of the child are paramount. Moreover the needs of parents cannot be separated because a child lives in a family and to have stressed parents does not help a child.”

The NESF (2005) have recently produced a report on early childhood care and education (ECCE) based on a detailed analysis of the current Irish landscape and the extant literature on best practice principles. In their report the NESF put forward a broad and carefully developed child-centred policy framework and implementation plan for ECCE to cover a ten-year period based around five core principles:

“valuing children’s competence and contribution; holistic support for young children’s well-being, learning and development; universal access for all children to early childhood and education; ongoing quality development in policy, infrastructure and service provision; building on existing partnerships”

A key theme of the NESF proposal is the protective effect of accessing quality care and education in early life and the potential for alleviation of broader societal inequalities and disadvantage. If the recommendations of the NESF are implemented, by the year of 2015 a comprehensive system of ECCE would be in place that would be grounded in best practice principles and an awareness of the impact that early childhood experience can have on long-term outlook. Professor Coolahan, project team chair of the NESF emphasised the importance of a long-term vision:

“This report is realistic and feasible. We could have produced a wish-list of unrealistic aspirations but that would not have been helpful. The proposals are gradual, built on sustained progress. The idea is to maintain a sustained pattern, reflected in our use of a ten year plan comprising two five year slots, 2005-10, with adjustments made to circumstances for the second five years. We believe this target is needed to bring about significant changes.”

A major strength of the NESF proposal is that it was developed with the consensus of the many groups with an interest in this sector including employers, nursery schools, kindergartens, Montessori, playgroup associations and childminder associations. The NESF proposals also received universal support from the contributors to the Joint Committee.

Recommendation 2. That the 10 year strategy framework set out in the NESF Report should be considered as a broadly suitable model for the child care system.

At present, the Department of Justice, Equality and Law Reform has lead responsibility for the co-ordination of national childcare policy but several other Government Departments are also playing important roles. According to the NESF the Department of Health and Children has provided a variety of services through its child and family support programmes and has a well-developed local network of providers that work to deliver on policy objectives and services. The Department of Social and Family Affairs is largely responsible for income support for families and children. The Department of Education and Science currently provides support for children in the first years of primary school and for some 3 year olds in disadvantaged areas. The Department of Community Rural and Gaeltacht Affairs also supports many local and community projects and offers a network of local facilities. Many contributors to the Joint Committee hearings noted that this fragmentation of responsibilities has proved problematic and there is a need for a more unified delivery of services by a single department with responsibility over the whole area.

The Department of Justice has taken the lead in childcare because it contains the equality division which provided access to EU funding targeted at equality issues (EOCP). However as we move towards a greater reliance on Exchequer funding and a model of childcare that is based on the broader needs and rights of children and parents there is consensus that the Department of Justice is no longer the most appropriate lead department for childcare. Mr. Alex MacLean, chairperson of the BMW region of CCCs discussed this issue in his submission:

“If we are to have children at the centre, we must see child care moving from the Department of Justice, Equality and Law Reform into the care of the Minister with responsibility for children and beginning to be part of the overall family support being offered by the State, through its various agencies, to enable families to reach their potential. Initially, much family support is carried out by the HSE but during the current transition period this may not be the best location right now. The National Children’s Office, along with the Minister with responsibility for children, has cross-Departmental responsibilities. It is not just a matter of lodging them in one Department for everyone else to forget. Each Department, be it with responsibility for the environment, education, health or social and family affairs, has a key role to play.”

Thus, assigning overall responsibility for childcare to a single department should not result in a strategy that is limited to a single dimension such as equality or education. A holistic perspective must be maintained. Professor John Collahan, of the NESF suggested that a method of ensuring closer inter-departmental collaboration would be to establish a sub-committee within the lead department that would be charged with implementing child care policy and cementing existing partnerships:

“A single Department must take responsibility for this whole area. It has suffered from fragmentation. That Department could set up an early childhood development unit, which would become the key activating agency with expertise to carry through change. Responsible to the Cabinet, it would act as a co-ordinating and driving force for the other Departments, which would each have certain responsibilities. Nothing else will do. If activity is not co-ordinated, it will continue to be fragmented.”

While the NESF state that the choice of lead department is a matter for Government the CCCs, the IPPA and Barnardos each recommend the Department of Health and Children. Sylda Langford, representative of the Department of Justice, agreed that lead responsibility should lie within another department. A coherent long-term Government strategy cannot be implemented without clear specification and coordination of Departmental responsibilities. Conceptually it would appear that the Department of Health and Children or the Department of Education and Science would be best suited to the role of overseeing implementation of childcare policies.

Recommendation 3. Responsibility for overseeing the development of child care services should rest with a Cabinet Minister in the Department of Health and Children or the Department of Education and Science.

D) Ensuring Choice

Work force participation is an essential method for many families to relieve financial pressures and provide the best future for their child. However, the most recent international research on early childhood development supports quality stay-at-home parenting as the most beneficial policy for young children particularly in the first year of life. It is not always necessarily appropriate or feasible for the parent/s to care for their child at home and this is why a policy which empowers parents to make their own choice about the best option for their child is being advocated.

A critical issue in ensuring that parents are able to make these choices is the support provided for working parents who wish to take parental leave. The current Parental Leave Act, 2001, does not make provisions for payment during parental leave and as a result there has been very low take up to date particularly amongst low-income families. Many contributors warned that under the current system, only parents who have sufficient income can afford to take leave in order to care of their child during the first year. The Department of Justice, Equality and Law Reform Review of the Parental Leave Act (2001) shows that only 20% of eligible employees have taken leave since it was introduced and this figure is confirmed in a recent poll by the Irish Examiner. The vast majority of those returning to work cite economic reasons for not taking more time at home. Thus the early care of our children is being sacrificed to a certain extent due to financial pressures.

There was universal consensus amongst contributors that parental leave should be increased from the current 18 weeks to a minimum of 26 weeks and that parents should be paid during leave. The NESF recommends extending maternity benefit entitlement to 26 weeks by 2009 (costed at €100 million) but could not reach consensus with employers on paid leave. Professor Coolahan conceded that this represents a weakness in the NESF proposal and is hopeful that further consideration will be given to providing paid parental leave. The NWCI, the Department of Justice, the CCCs, the IPPA and Barnardos each made specific reference to the importance of paid parental leave as a critical step in ensuring uptake.

Another related issue is that parents who are able to avail of parental leave provision often do so to the detriment of their career goals. Mr. Jim Hewison of the South and Eastern CCCs commented that:

“People should be able to avail of parental leave possibilities without losing out on promotion...Many women say that having left work to look after their children, they find themselves at the bottom of the ramp when they return to work.”

These pressures have meant that many parents opt to leave the workforce entirely while others feel obliged to rely on childcare for their infant. Several contributors advocated greater flexibility in parental leave arrangements in terms of sharing leave between parents and the implementation of family friendly policies on return to work such as part-time, flexi-time and job share arrangements. Dr. Gaffney of the NESF commented on this important issue with particular reference to mothers:

“There is a highly educated female workforce. They do not lightly leave their careers. They struggle through the first and perhaps the second baby but are defeated by the third. So women opt to stay at home. What we do not know is how many would stay at home if we had a system like the French one, where one’s job is guaranteed for three years while one stays at home. There is no point in advising people to stay at home because it is enjoyable or good for their children. People make choices in a much more complex way because the landscape has changed. We must even the playing pitch and allow people to maintain their attachment to the labour force while giving them as much time as they want with their children.”

At present, fathers are entitled to just three days of unpaid paternity leave and again take up has been quite poor. The NWCI recommend increasing paternity leave in order to promote greater sharing of responsibilities and economic independence. The NESF recommend introducing three days of paid paternity leave by 2006 which has been costed at €17 million and advocates further increases in the years to come.

One concern has been that the proposed parental leave packages could militate against labour market targets. Dr. Joanna McMinn of the NWCI notes however that:

“It has been shown that it is better for women to have generous parental and maternity leave. It has been proven to attract women back into the labour market in job-protected situations. One has higher and more sustainable skills than one would if women were given only very short-term benefits for which they would not want to leave their small children, instead tending to drop out. It supports women to make the choice and it is also better for businesses.”

Employers will play a vital role in establishing a new perception of childcare in Ireland. If flexible work and leave arrangements are not provided then many parents will feel that it makes better economic sense to stay at home than to pay for childcare. For businesses that make significant investments in training their employees it is in their interests to ensure that employees do not feel that their work and family commitments are in competition. Facilitating quality childhood care is in the employer’s interest and in the national interest. Recognition of this fact, in attitude and in practice, will go a long way to ensuring that the care of our children is prioritised in the long-term.

Recommendation 4. That there should be an incremental move towards a combination of extended paid maternity leave and paid birth related parental leave and that family friendly employment policies should be encouraged.

While efforts should be made to support parents in the workforce, contributors also drew attention to the importance of providing equal levels of support for parents who are not working. Catriona Lynch of Curam informed the Joint Committee that:

“According to the most recent figures from the CSO, there are over 500,000 people, 95% of whom are women, involved in caring in the home.”

At present according to Ms Joanna O’Connor of the NWCI:

“women who care for their children at home have no access to State pensions or maternity benefit. Their care work is not credited and there is no contingency within the social welfare system for parenting.”

There is therefore a certain level of inequality in the current system as tax breaks are available to cover childcare costs for working parents but no equivalent provision is made for parents who choose to care for their child at home. Under the current system of taxation a parent who chooses to stay at home will pay up to €5,000 more per year in income tax. Ms Lynch of Curam argues that:

“Child care subsidies given to support child care in this country must be spent equally (on working and non-working parents)...It is untrue to suppose that the parent in the home is not paying for child care and does not incur cost. The parent in the home pays tens of thousands of euro for child care every year by doing without income.”

An important step in adopting a childcare model that is centred on the needs of the child will be to ensure that policies do not favour either working or stay-at-home parents.

Recommendation 5. That the important role of stay at home parents should be acknowledged and that their needs should be addressed to a greater degree.

The cost of caring for children in Ireland today is a major issue of concern for all parents. According to a recent poll in the Irish Examiner 40% of women now feel they cannot afford to have children and this a worrying trend. Ms Áine Ui Ghiollagáin of Curam informed the Joint Committee that:

“When one listens to the experience of parents across the board, one discovers that they have great difficulty funding the care and education of their children. If they choose to go out to work, they must pay the equivalent in some cases of more than a second mortgage. If they decide to stay at home, they lose their second income and are hit with an extra tax bill on their first income. The question is whether we want people to have children and choices.”

Contributors to the Joint Committee have advocated a universal increase in child benefit to offset the increasing costs of raising children in Ireland. Such a measure is seen as important in recognising the challenges faced by parents today and would represent a payment to all children in Ireland without excluding or favouring any particular group.

Recommendation 6. That there should be a universal increase in child benefit to offset the increasing costs of raising children in Ireland.

In addition, there is also a strong case for providing a separate childcare payment. As Ms O’Connor of the NWCI argued:

“We say very clearly that we should increase child benefit to alleviate child poverty. However, it is not an answer to the development of a quality, sustainable child care infrastructure. As this issue is complex and will require different solutions, we should not go looking for a single quick fix. That will not work.”

While child benefit has increased steadily in recent years improvements in the quality and availability of childcare facilities have not necessarily followed. There is now a need for a more focused approach. Several contributors argued for a further payment to parents that would be transparently tied to accessing quality assured childcare, including out-of-school services. Such a measure would act as an indirect subsidy to childcare providers which would lead to improvements in the quality and sustainability of childcare facilities. This payment would also relieve families of a major financial burden and would further encourage parents to see childcare as an important developmental service for their child.

As noted previously, current childcare costs account for a large proportion of income for working parents (estimated at over 30%). The cost of living in this country has increased steadily but child benefit and child care should not be considered synonymous. A flexible childcare payment to parents in the form of vouchers or cash or a combination of both would facilitate parents in whatever choices they make for their child, and would help to ensure that all children can access quality childcare facilities. While child benefit plays an important role in providing financial support for Irish parents, an additional targeted childcare payment would tie in to issues of choice, quality and accessibility.

Recommendation 7: That parents should receive a separate targeted childcare payment (in the form of cash, vouchers or both) that would be transparently tied to the use of quality assured childcare facilities.

E) Ensuring Accessibility

As stated previously, there is a huge demand for additional quality childcare places in Ireland. Since 2000, EOCP capitation and staffing grants have been instrumental in the development of new and existing childcare facilities. Pauline Moreau of the DJEL outlined the significant role the EOCP has played in improving childcare services in Ireland:

“The EOCP is proactive and is making available almost €500 million in capital, staffing and quality awareness programmes over a seven-year period to support the development of nearly 40,000 new child care places and to ensure the availability of community-based child care at reduced cost to very disadvantaged families. It is aimed at supporting the economy, meeting parents’ child care needs and helping families in disadvantaged circumstances to break the cycle of disadvantage.”

Submissions to the Joint Committee by representatives of the CCCs and Local care groups further underlined the great improvements that have been made possible by the EOCP. However, EOCP funding is short term in nature and committed only to 2006 which has created financial uncertainty for its current beneficiaries and applicants. The committee received a consistent message from local providers that the excellent work of the EOCP in increasing the number of childcare places will not lead to the provision of affordable child care in the manner that was intended unless staffing grants are maintained and increased. Mary Giblin of the Nurseries Association stated:

“I reiterate that there is a need to maintain existing child care services and staffing grants to community groups, particularly those in disadvantaged areas...There is a need to continue the good work already done.”

A large proportion of EOCP funding has been used to support childcare groups in disadvantaged areas who provide a service to parents who cannot afford to pay the full fee. The CCCs and local providers made it clear that as a result of this crucial work, community childcare services cannot be sustained without Government investment. Uncertainty regarding future funding has meant that care providers operate in an uncertain environment which hinders their ability to strategically manage their development in a long-term manner. If we are to move towards a system in which all parents are able to access quality childcare facilities regardless of their income then appropriate funding to community childcare facilities must be guaranteed.

There is still a huge demand for the creation of new community-based childcare facilities that can cater for all parents and particularly for extended care (including care after school and during school holidays). Ms Sylda Langford emphasised the need for flexibility in childcare provision:

“There must be the type of child care that all parents can use. By that, I mean that if a mother is working in the home, she will want to use the pre-school service. If a mother is working part-time, she will want part-time childcare. If a mother is working in a factory and must be at work at 8 a.m., she will need flexible childcare. As parents must work and do not get long holidays or days off when schools are off, we also need a type of child care which covers the periods before school, during school, after school and during school holidays, and this must be affordable.”

With more than half of mothers of children aged five and younger working outside the home, there is an urgent need for a diverse and flexible range of care for children aged 12 and under, including school-age care.

Recommendation 8: That the funding for the Equal Opportunities Childcare Programme (EOCP) needs to be supported by the State in its next cycle to ensure continuation of existing services and development of new facilities. The focus of the next programme should be on the development of a flexible child-centred service.

Another key point of convergence amongst the contributors to the Joint Committee was that high quality childhood care and education should be available and accessible to all children in Irish society and particularly for those who experience disadvantage and those with special needs. At present, community childcare provided by non-profit groups is the most common form of organised childcare in disadvantaged communities. The cost of childcare is approximately the same irrespective of the wealth of the community. As a result community childcare groups have been dependent on ongoing State subvention, through the EOCP, as well as community employment schemes and fund raising. Research indicates that childcare services for disadvantaged communities can provide an important opportunity for intervention that will encourage community regeneration by supporting children and facilitating access to employment for parents. In a written submission to the Joint Committee the charitable organisation Barnardos recommends:

“that the principle of social inclusion should be prioritised in any new childcare programme because international research has shown that quality early years interventions can play a significant role in combating child poverty and in promoting children’s health, well-being, learning and development. This early investment in the lives of children will lead to substantial savings in the medium to long term in other state expenditure in areas such as social welfare, crime, addiction, and mental health.”

The Joint Committee heard submissions from a number of local care providers working in disadvantaged communities. It is clear that there is still a great demand for the establishment of further affordable childcare services in disadvantaged areas. It is also clear that the tireless efforts of community childcare providers to date have been of huge benefit to Irish society and must be provided with the necessary support to ensure their continued presence in the long-term. In addition, as part of a child-centred approach to childcare it is important to provide all parents in Ireland - irrespective of wealth - with the opportunity to make choices for their child’s care. As Ms Orla O’Connor of NWCI observes:

“If it is good for children to be at home in the early years, it is also good for parents on social welfare.”

Many of the contributors to the Joint Committee recommended that disadvantaged children should be prioritised in the roll-out of future childcare strategies.

In recent years, measures have been taken to ensure access to schools for children with special needs. For such children, the transition to primary school is made much easier by the presence of specially trained staff. If we are to bring childcare into an ECCE framework then similar provisions must be made in childcare services for children with special needs and disabilities. To ensure early intervention in this regard it is important that adequate provision is made for early assessment.

Recommendation 9. That a firm commitment be made to supporting disadvantaged children, children with special needs, and children with disabilities.

In keeping with evidence that early life experience is of critical developmental importance there is now substantial evidence indicating that pre-school education can be hugely beneficial for children. Structured play and early education are important elements in developing a child’s capacity to interact with others, and to learn how to learn. At present, however, pre-school education is available only to parents who can afford it. In their recent report the NESF conducted a detailed analysis of the impact of early childhood services in disadvantaged communities.

“High quality pre-school programmes for young children living in poverty contribute to their intellectual and social development in childhood and their school success, economic performance and reduced levels of crime in adulthood and these benefits appear to extend to adults in midlife.”

Thus there is clear evidence that early education is an important protective factor for disadvantaged children. In her submission Dr. Gaffney of the NESF emphasised that tackling disadvantage at the earliest possible juncture is the most effective means of reversing negative developmental trajectories:

“Ability gaps open up very early in family types before formal schooling begins and then persist. Some interesting work carried out for the United Kingdom’s Cabinet Office seemed to shock its members. The work, in which large samples were examined, shows that, if one takes a middle class baby of average ability at 12 months of age and compares him or her with a working class, disadvantaged baby of above average ability, the gap has almost disappeared by the time the first baby is 22 months old. This could be due to the disadvantaged child diminishing, the advantaged child having all the privileges of a middle class education and a home background or a combination of the two. The gap has closed at approximately three years old but the middle class average ability child has streaked ahead by the time they are six years old. The other child will never catch up no matter how much palliative care is given. These are good studies as this is the reality of the situation.”

Thus ability gaps open long before formal schooling begins and research by the economist James Hechtman indicates that the greatest benefits are achieved by early intervention which nurture the abilities needed for success in later life. There is therefore a strong economic and social argument for ensuring universal access to pre-school childcare and education. As Orla O’Connor of the NCWI observes:

“It can no longer be left to the market to decide how, when and where early childhood care and education is delivered.”

Under the EU Barcelona Objectives (2002) Ireland committed to providing childcare by 2010 to at least 90% of children between the age of 3 and mandatory school age. At present Ireland has the lowest rate of enrolment of three year olds in ECCE in comparison with other EU countries. There was clear agreement amongst contributors that universal childcare should be available in the year before school for all Irish children.

Recommendation 10. That the State should support appropriate early childhood education and care in the year before children start primary school (i.e. ages 3-4).

F) Ensuring Quality

As noted above, informal childminding accounts for approximately 80% of all childcare in Ireland today. In their submission to the Joint Committee, Childminding Ireland emphasise that:

“This provision is essential for the economy, enabling parents to work and provides a means of self-employment for parents who wish to remain at home and provide their own childcare. Childminding needs to be sustained and developed, because the number of places and the flexible nature of the childcare provision could not be replaced”

The personal and flexible nature of informal childminding makes it the most desirable option for parents today. At present, home based childminders are not obliged to notify themselves to the relevant authorities until they are taking care of more than three children who are not their own. However, strong evidence has been presented to the Joint Committee indicating that the quality of childcare is the crucial factor. Childcare and education services are beginning to adopt a more holistic approach that addresses the child’s emotional, social and intellectual development and this will require the presence of appropriately trained staff. The NESF report states:

“in areas of disadvantage, quality child care can counteract the negative effects of poor parenting. On the other hand, bad childcare can make a bad situation worse.”

Thus future childcare policy must ensure that not only are all children able to access childcare but that they are able to access high quality childcare. One major step in this direction will be to ensure that childminders, who are already providing the majority of childcare in this country, are adequately trained and regulated. It is clear that many childminders are providing a quality service for the children in their care and the CCCs have been working hard to engage many childminders through the provision of training, networking and information activities. Mr Alex MacLean of the BMW region of CCCs made the following suggestions to the Joint Committee:

“We are conscious of the fact that a great deal of child care is carried out in the informal childminder’s network. Although we have been quite successful to date in bringing some of them into a more formalised system through grants and, in particular, training, a redoubling of efforts is needed to encourage them to come out of the black economy and enter a more formal structure. We must also ensure that the regulations that may apply are consistent with achieving a balance so that the people involved are not put off by taxation or regulation. A balance must be achieved between the needs of the children, the people delivering the services and the regulatory authorities.”

Many other contributors to the Joint Committee made it clear that steps must be taken to incentivise and encourage all childcare workers to seek registration and accreditation. Ms Ashling Hooper of the National Children’s Nurseries Association noted that:

“This would have the effect of regularising the situation of some of those operating outside the formal economy. It would also increase the attractiveness of employment in the child care sector in which salaries are generally low, with many staff on the minimum wage or below the average industrial wage.”

The issue of quality was also raised with respect to formal community based childcare services. Local representatives note that while labour schemes have been essential in staffing community childcare services, this has also been problematic for several reasons. First, a reliance on labour schemes has meant that the core staff in childcare services have been made up of inexperienced trainees with high turnover proving to be a significant problem. Second, childcare services have become reliant on employment schemes whose funding is uncertain in the long term. This environment does not encourage groups to look beyond the time when their funding runs out. Contributors noted that the profile of childcare workers would be raised significantly by establishing a consistent pay scale that would be related to standardised training. Our children would benefit hugely from a childcare sector that can provide people with genuine career possibilities and therefore attract qualified and motivated workers.

Several contributors to the Committee also advocated appropriate vetting of childcare workers as a method of ensuring a higher quality of service. The safety of their child is obviously a major concern for parents and it is essential that they should have confidence in the service that is provided. Vetting may also help to stimulate increased male participation in this sector. Recent surveys by the NESF and by Childminding Ireland indicate that an overwhelming majority of childcare workers are female. Public perceptions and a lack of information act as a barrier to men working with children. If all workers are required to submit to comprehensive vetting procedures, parents can have greater confidence in the safety of their child and this will help to reduce the gender imbalance.

We cannot draw childcare into an ECCE framework while relying on inexperienced and poorly paid carers. Therefore steps must be taken to develop a secure longer-term staffing model by improving vetting procedures, qualification and training and by increasing pay.

Recommendation 11. That a firm commitment should be made to maintaining and developing quality childcare services in Ireland by improving the status and conditions of childcare workers. The vetting of childcare workers should be an integral part of this process.

G) Funding

At present Ireland has one of the lowest rates of investment (0.4% of GDP) when compared to other OECD countries (e.g. Denmark spends 2.4% GDP). The contributors to the Joint Committee have made the case that ECCE is an area which requires substantial State investment and support. At present, childcare is provided by relatively poorly paid and untrained staff and at a cost which many parents cannot afford. A recent OECD report concluded that without public investment:

“the children who need the best services often receive the poorest quality”

Each contributor warned the Joint Committee that additional Exchequer funding is needed on an ongoing basis to sustain community child care centres. At present, reliance on labour schemes and uncertainty regarding EOCP funding means that the energies of the childcare sector are channelled into issues of sustainability rather than focusing on issues of quality. In her submission to the Joint Committee Ciara Hoey of the Dublin 10 Action Group argued that community care groups designed to support areas of disadvantage cannot be self-sustained due to the very nature of their role:

“There needs to be an acknowledgment that fees — which include, in some instances, user purchase fees, private purchase fees and labour market sources — will only ever make up a small proportion of the income for a child care centre. The State must recognise that moneys will need to be supplied on a long-term basis to community facilities to enable them to be viable and sustainable.”

Several contributors drew attention to the long-term economic advantages of childcare investment associated with the effects of early care and education on school success, economic performance and reduced levels of crime in adulthood. Irene Gunning of the Early Childhood Organisation cited a well known study of the Perry pre-primary school programme:

“At age 27, the return on investment was €1 spent and $7 returned. Now that they are aged 40, this has increased to a return of approximately $17. This is very strong evidence.”

The recommended measures outlined in this report cannot be achieved without significant increases in funding.

Recommendation 12. That funding for early childhood care and education should be increased from 0.4% of GDP to at least 1% of GDP in the short to medium term leading on to further increases thereafter.

Recommendations of the Joint Committee on Childcare

The Joint Committee recommends as follows:

Recommendation 2. That the 10 year strategy framework set out in the NESF Report should be considered as a broadly suitable model for the child care system.

Recommendation 3. Responsibility for overseeing the development of childcare services should rest with a Cabinet Minister in the Department of Health and Children or the Department of Education and Science.

Recommendation 5. That the important role of stay at home parents should be acknowledged and that their needs should be addressed to a greater degree.

Recommendation 6. That there should be a universal increase in child benefit to offset the increasing costs of raising children in Ireland.

Recommendation 7: That parents should receive a separate childcare payment (in the form of cash, vouchers or both) that would be transparently tied to the use of quality assured childcare facilities.

Recommendation 9. That a firm commitment be made to supporting disadvantaged children, children with special needs, and children with disabilities.

Recommendation 10. That the State should support appropriate early childhood education and care in the year before children start primary school (i.e. ages 3-4).