Programme Overview

1. Background
2. Current Operating Model for Early Learning and Care and School-Age Childcare
3. Figure 1: Current Operating Model for ELC and SAC
4. Review of the Early Learning and Care and School-Age Childcare Operating Model in Ireland
5. Emerging Recommendations

Background

Since 2015, the levels of State support and investment in early learning and care (ELC) and school-age childcare (SAC) has increased significantly, rising from €270m in 2015 to €1.1 billion in 2024. This enhanced investment has widened the provision of subsidies for parents and access to ELC and SAC for children and has led to improved quality.

A number of new initiatives have also been introduced as part of First 5 the Whole of Government Strategy for Babies, Young Children and their Families (2019-2028) with additional major reforms of the ELC and SAC sector planned in the coming years. These major reforms will lead to a significant increase in the numbers of children, families, workers and providers interacting with the operating model for ELC and SAC and as a result will place substantial demands on this operating model.

In anticipation of this, a review and redesign of the operating model was committed to in First 5 to ensure it is equipped to deal with these significant reforms. Specifically, First 5 committed to 'review the operating model for ELC and SAC, at national and local level, to develop more consolidated and streamlined planning, funding, administration and quality support'. Separately, there is a commitment in the Programme for Government to establish a state agency for early learning and childcare.

In line with First 5 and this commitment in the Programme for Government, the initiation of the Review of the Early Learning and Care and School-Age Childcare Operating Model in Ireland was approved by Government in 2020. The Review was undertaken by an external contractor, Indecon Economic Consultants, in 2021.

Current Operating Model for Early Learning and Care and School-Age Childcare

The current operating model for ELC and SAC operates across multi-level structures and includes, among others:

• The Department of Children, Equality, Disability, Integration and Youth (DCEDIY) as lead Department with policy responsibility;
• Pobal as scheme administrator and funding intermediary. Pobal also provides Better Start National Early Years Quality Development which supports, mentors and provides specialist advice to ELC services and oversees the provision of Continuous Professional Development opportunities nationally;
• 30 City and County Childcare Committees funded by the DCEDIY to act as its local agent in the delivery of the ELC and SAC programmes and the implementation of Government policy at local level;
• The Department of Education Early Years Inspectorate with responsibility for inspecting the educational elements of ELC provision;
• 7 National Voluntary Childcare Organisations who perform tasks including supporting service providers, training staff, developing best practice, providing expert advice to policy makers, and
• Tusla - The Child and Family Agency as the statutory regulator of the sector.

Figure 1: Current Operating Model for ELC and SAC

Review of the Early Learning and Care and School-Age Childcare Operating Model in Ireland

The Review's objective was to ensure that the operating model is fit for purpose to implement Departmental ELC and SAC policy relating to quality, affordability and access, to the scale and standards required in an evolving and expanding sector, with the citizens of Ireland at its heart as core beneficiaries. Specifically, the Review:

• Provides a detailed analysis of the strengths and weaknesses of the current ELC and SAC operating model
• Draws on national and international evidence to identify and consider alternative models for how the ELC and SAC operating model can be structured
• Having regard to the other major reform projects underway, makes recommendations for reforms to the current operating model required to ensure optimal governance, effectiveness and value for money, ensuring access to high quality and affordable ELC and SAC.

Emerging Recommendations

The review ultimately concluded that a dedicated statutory agency (under the remit of the Minister for Children, Equality, Disability, Integration and Youth) is the optimal operating model for the sector for the years ahead. This agency will undertake the roles and functions currently carried out by Pobal Early Years (including Better Start) the City/County Childcare Committees 30 (CCCs), and the operational functions carried out by the Department.

A dedicated State Agency will address the weaknesses with the current operating model (while also harnessing its strengths) and facilitate the Department in implementing and progressing the significant reforms planned for the sector.

The findings and recommendations of the review were approved by Government in March 2022 and a project team was tasked with undertaking further detailed analysis, planning, consultation and engagement.