Professional Documents
Culture Documents
SEPTEMBER 2013
Investing in Tomorrow
Discussion Paper on
CONTENTS
Introduction The Current Early Childhood Care and Education Landscape The National Early Years Strategy Fianna Fil Vision for Early Childhood Care and Education in Ireland Overarching Goals: Children, Parents, Society and the Economy Underpinning Principles Summary, Key Recommendations and Targets for Implementation Objective 1: Objective 2: Objective 3: Objective 4: Objective 5: References: Appendices: Appendix 1: Key Developments that Shaped the ECCE Sector in Ireland 1992-2012 Appendix 2: Existing Funding Supports for Childcare in Ireland 37 35 Raising Quality Standards Supporting and Professionalising the Early Childhood Workforce Enabling the Inclusion of Children with Special Educational Needs in Early Childhood Services Providing Accessible and Affordable Childcare to Working Parents Tackling Obesity in Early Childhood 4 5 6 11 17 21 25 29 34 2 3 3
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INTRODUCTION
Early childhood education is a fundamental component of Irelands education system. Learning and development that takes place in early childhood, provides an essential cornerstone for lifelong learning and educational attainment. Effective early childhood care and education has a significant role to play in reducing educational underachievement, particularly for children who are faced with barriers to learning, thereby reducing or eliminating the need for later interventions. Investing in Tomorrow: the Fianna Fil Discussion Paper on Early Childhood Care and Education, seeks to ensure that through policy, legislation and investment, children get the best start in life to enable them to reach their full educational potential. The previous 12 years have witnessed many positive developments for Early Childhood Care and Education and under the Fianna Fil administration; there was a clear commitment to investing in children. At policy level, a range of key initiatives are relevant to the emergence of structures to support early childhood care and education (see appendix 1). Prior to 2000, there was very limited capacity in the childcare sector. However, over the decade 2000 to 2010, the State, initially in partnership with the EU, invested 425 million capital funding to create childcare places throughout Ireland. The Equal Opportunities Childcare Programme which ran between 2000 and 2007 created some 40,000 childcare places, while its successor the National Childcare Investment Programme created 25,000 new childcare places between 2006 and 2011. As a result of these two programmes, we now have extensive early childhood physical infrastructure in place. The introduction of the Free Pre-School Year by Minister for Children Barry Andrews in 2010 was also a monumental advance for early childhood education in Ireland. The State invests approximately 175 million each year in the scheme and approximately 95% of children participate. This discussion paper on Early Childhood Care and Education (ECCE) acknowledges Fianna Fails commitment to support the strengthening of these fundamentals to ensure that previous investment is not lost and the infrastructure is protected, sustained and improved.
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Fianna Fils Vision for Early Childhood Care and Education in Ireland
Fianna Fil put forward a vision for Early Childhood Care and Education that is contemporary, rational and responsive to the needs of parents and children in Ireland today. Through the proposal of a range of goals, objectives, recommendations and actions, Fianna Fil are committed to progressing the regulation, quality and affordability of early childhood care and education as an important early intervention measure where benefits are interdependent for young children, parents, society and the economy.
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OVERARCHING GOALS:
Children, Parents, Society and the Economy Children: Supporting every childs right to high quality early education and care
To support every childs right to high quality early education in environments where children are safe, valued, happy, healthy and protected from harm To provide equal access to high quality early education and childcare services for all children from birth to six years of age where children can reach their full potential regardless of individual ability or circumstance To ensure children with special educational needs are integrated into the early education and childcare sector, through the provision of necessary supports to enable them to access and participate fully in early childhood service provision.
Society and the Economy: Developing a professional and purposeful early childhood sector
To ensure all early childhood services are continuously monitored and fully regulated to enable the health, safety and well-being of all children in line with the highest international standards To provide professional pathway routes for staff working in the early childhood sector including minimal qualifications, training opportunities and appropriate remuneration for qualifications and experience. To ensure that Irelands investment in the early childhood care and education system is maintained and incrementally increased to ensure that services are protected and developed in line with European early childhood provision.
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UNDERPINNING PRINCIPLES
Investing in Tomorrow: the Fianna Fil Discussion Paper on Early Childhood Care and Education is grounded in the following underpinning principles:
Children are valued and respected as young citizens, enjoying a childhood where they are cherished and supported by their family and by the wider society. Investing in early childhood care and education is more than just a financial investment; it is a statement of commitment and respect for every childs right to education regardless of age, ability or background in Irish society. The early childhood sector is valued as a core component of Irelands employment, economic and enterprise infrastructure and one that will play a pivotal role in enabling people to return to work as the economy improves.
The Fianna Fil Discussion Paper on Early Childhood Care and Education draws on a range of consultation mechanisms including:
Fianna Fil held an Education Policy Conference in June 2012, entitled Putting Education First. A wide range of valuable proposals were put forward by those in attendance, many of which have been incorporated into this document. As part of the Fianna Fil Ard Fheis in 2013, a number of suggestions regarding early childhood care and education policy were put forward from members during the seminar entitled Education and Children: Cherishing our Future. The Fianna Fil Early Childhood Care and Education Discussion Paper is in line with national and international research in two key areas: evidence regarding the effectiveness of quality early childhood care and education for childrens life chances and subsequent educational performance; evidence that shows the economic return to investment in childrens early years is significantly higher than the return to investment in education later in childhood.
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Key Recommendations (P13-19) 1. 2. 3. 4. ECCE sits with a single Government Department The GDP ratio in relation to investment in ECCE is incrementally increased The inclusion of Childminding and School Age Childcare in childcare legislation A revised inspection system including a registration process and the involvement of HIQA to be extended to all child related services Activation of early childhood quality and practice frameworks Standardised Transition Statement between PreSchool and Primary School.
Targets for Implementation Immediate effect To start Budget 2014 Include in forthcoming Children First Bill 2013-2014
5. 6.
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2.
March 2014 or next entry/reentry contract term for childcare funding programmes. 3. Working conditions for the early childhood workforce are improved to include paid non-contact time and an allocation of continuing professional development days Revisions made to the contract of service for state funded early childhood services.
March 2014 or next entry/ re-entry contract term for childcare funding programmes. 4. 5. Mandatory training levels are included in childcare regulations Existing Childcare and Education Training Programmes are fit for purpose. Revisions made to the Child Care Regulations: 2014 September 2014
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OBJECTIVE 3: Enabling the Inclusion of Children with Special Educational Needs in Early Childhood Services
Fianna Fil supports a policy of inclusion in that every child with a disability or special educational need is enabled to access early childhood education provision in integrated and inclusive environments, rather than specialised settings, unless it is not in the best interests of the child. Nevertheless, the absence of a specific inclusion policy or guidelines for early childhood is a significant barrier to the realisation of inclusive practice in mainstream early childhood services. In addition, supports for children with special needs are largely at the discretion of the local HSE resulting in varying levels of service across counties and regions. Proposals and recommendations to enable inclusion include the full implementation of the EPSEN Act 2004 and the development of a National Inclusion Policy for the early childhood sector. It is further recommended that responsibility for the provision of Special Needs Assistants to mainstream pre-school services rests with the HSE through accessible disability support services. The expansion of flexible models of early childhood provision is recommended to support the inclusion of children with more severe and complex needs. This enables a system of dual placement between specialist and mainstream provision throughout the country, to meet a childs individual learning and support needs. Fianna Fil proposes the extension of the Free Pre-School Year to a second, full pre-school year for children with special educational needs and disabilities. It is proposed that this is the first step in the phased roll-out of a second pre-school year for all children.
2. 3. 4.
A National Inclusion Policy for the early childhood care and education sector Move to mainstream SEN Assistants being directly employed by the HSE Flexible models of early childhood provision to support the inclusion of children with more severe and complex needs including a system of dual placement The provision of a second full free preschool year for all children with special educational needs.
Provision within Budget 2013 2014 Retain existing specialist preschool services and map the need for further services as part of a National Inclusion Plan (above) Pre-School Year 2013/14
5.
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Fianna Fil proposes that the Government needs to systemically address the cost of childcare for working families through a cost analysis of childcare in Ireland with cost relief proposals for working parents. Recommendations around paid maternity leave and the development of a joint transferrable paid parental leave plan are proposed. The development of School Aged Childcare is also recommended as a means of providing essential support services for working parents.
2. 3.
An extension of statutory paid Maternity Leave to one year by 2019 A joint transferrable paid parental leave plan, based on the existing maternity leave entitlements as an interim measure The development of School Aged Childcare Provision
4.
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The social and physical environments provided in early childhood services exert an important influence on childrens diet, behaviour and lifestyle choices. With regard to young children, many opportunities exist for enhanced health promotion through the early childhood curriculum.
A series of recommendations are put forward including a National Obesity Prevention and Treatment Strategy. In addition, the development of, and support to, early intervention programmes and initiatives such as a Health Promotion Flag Initiative and the expansion of existing Childhood Obesity Prevention Programmes is proposed.
Recommendations for early childhood services include the mandatory provision of outdoor play spaces and a series of actions to improve the breadth and effectiveness of health promotion education and obesity prevention.
2.
September 2013
3.
Requirement of new Pre-School Registration process: 2014-2015 Requirement of revised Child Care Pre-School Services Regulations: 2014-2015
4.
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OBJECTIVE 1:
Raising Quality Standards
Key recommendations:
1. 2. 3. 4. 5. 6. Responsibility for Early Childhood Care and Education sits with one single Government Department An investment of 0.7% of GDP in early childhood care and education The inclusion of childminding and school age childcare in childcare legislation A revised and fit for purpose inspection system including a registration process for all early childhood services including childminders The activation of early childhood quality and curriculum practice frameworks The development of a standardised Transition Statement between pre-school and primary school.
Context
There is consensus in academic literature that high quality pre-school programmes have lasting positive effects for children and society, particularly for children from low socioeconomic backgrounds and for those at risk of developing learning or behavioural difficulties at school (Barnett, 2008). On a review of international research on human capital, economist James Heckman concludes that the economic return to investment in childrens early years is higher than the return to investment in later childhood (2006). Nevertheless, pre-school education is the least resourced stage of Irelands education system.
The Inspectorate from the Department of Education and Skills (DES) and the Health Services Executive (HSE) Pre-School Inspection Services have a common interest in the quality assurance of pre-school services. The HSE Pre-School Inspection Service is responsible for inspecting early childhood services that cater for children 0-6 years of age. Childcare services, with the exception of child-minding, are governed by the Child Care Act 1991 and the subsequent Child Care (Pre-School Services) (No 2) Regulations 2006. It is anticipated that the inspection of pre-school services will soon be transferred from the HSE to the new Child and Family Support Agency in the Department of Children and Youth Affairs (DCYA). The Early Years Education Policy Unit (EYPU) in the Department of Education and Skills is co-located with the DCYA to ensure that policy developments in the early childhood sector are developed within an overall strategic policy framework for children. Local and national early childhood support agencies are a crucial resource to assist childcare providers to both maintain and build on quality standards in early childhood care and education. Local agencies such as City and County Childcare Committees provide a high degree of flexibility and responsiveness in terms of local need regarding quality supports, training and information. With appropriate resources, these existing support structures can raise quality standards through the provision of on the ground training, mentoring and peer networking supports.
Free Pre-School Year Childcare Supports for low income families CETS, CCS Scheme Childcare Workers through the Community Employment Scheme County Childcare Committees National Voluntary Childcare Organisations Early Intervention Programme
In order to achieve real and tangible progress in progressing quality standards in early childhood care and education, Fianna Fil recommend an increasing incremental investment to 0.7 pc of GDP over the next ten years, in the key areas recommended in this discussion 12
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paper. Obviously such investment can only take place as resources permit within the context of Ireland honouring its commitments under the EU Fiscal Compact Treaty.
Childminding
The Child Care Act 1991 exempts three categories of carer from pre-school regulations a relative of the child, anyone caring for children from one family or anyone caring for three or fewer children of different families. Unfortunately, these exemptions cover a high number of paid childminders and the system is open to manipulation. Nearly 50,000 children are minded by childminders every day but most of these 19,000 childminders are unregulated. At the end of 2011, there were only 257 childminders (approximately 1%) notified to the HSE and therefore subject to the HSE inspection process 13
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(Start Strong, 2011). Many parents are faced with no choice other than to use unregulated forms of childcare, mainly due to cost and accessibility, leaving parents, children and the childminders themselves vulnerable and unprotected. Fianna Fil proposes that requirements for all paid childminders should be proportionate to centre based services and requirements should include Garda vetting and training, including child protection training. Including childminders in a registration system will allow a comprehensive inspection of the service prior to operation. In relation to child protection concerns alone, the current situation which allows childminders to remain outside the regulatory framework cannot be allowed to continue.
However, the absence of a properly resourced implementation plan for the national roll-out of training and professional development opportunities relating to each policy has resulted in little impact on the quality of provision for young children. While the Free Pre-School Year was a very positive step forward, quality across early childhood services remains variable. Measures to improve quality have largely focused on the Free Pre-School Year, with almost no support for the development of quality services for children under the age of 3.
Early Childhood Policy: Solta, Aistear and the National Literacy and Numeracy Strategy
The development of Solta arose from one of the main objectives of the White Paper on Early Education published by the then Department of Education and Science in 1999 and was launched in 2006. Even though it is one of the key mandates of the Early Years Policy Unit, to date, only a small percentage of early childhood settings nationally (134 services out of 4,300 services nationally) have participated in a formal engagement process involving implementing the Solta Quality Assurance Programme. An evaluation of the Solta pilot programme commissioned by the DES provided a series of recommendations for the future roll out of the Solta framework in December 2011. To date there has been no visible evidence of any of these recommendations being progressed. Aistear was developed by the National Council of Curriculum and Assessment (NCCA) and was launched in 2009. Even though the development of Aistear was commissioned by the DES, to date neither the NCCA, DES nor the Early Years Policy Unit have taken responsibility for the implementation of the framework. To date, there has been no national 14
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training or implementation strategy or resource package to support the roll-out of Aistear to the early childhood sector. By comparison, work is well underway by the DES in relation to the implementation of Aistear in primary schools. Since the 2010/2011 school year and through collaboration between the NCCA and the Association of Teachers' Education Centres in Ireland, support initiatives have been implemented to enable primary school teachers and principals to become familiar with the key ideas in Aistear. This support is provided primarily through a suite of Aistear workshops, developed and facilitated by Aistear Tutors (primary school teachers) within the 21 fulltime Education Centres throughout the country. Up to the end of 2012, a total of 322 two hour workshops provided support to 5,977 teachers and principals. In addition, a total of 827 teachers were supported through 38 Aistear summer courses in 2011 and 2012. (Response to Parliamentary Question 14th March, 2013. Ref:13479/13). The National Literacy and Numeracy Strategy views early education as playing a central role in the formation of literacy and numeracy skills and includes recommendations aimed at raising many aspects of the quality of provision of early care and education. The strategy states that the ECCE workforce needs to continue to become more skilled and qualified if the challenging targets associated with supporting the development of early literacy and numeracy are to be achieved. At its launch in 2011, the Government stated that the National Literacy and Numeracy Strategy is a key priority and will cost approximately 6.5 million in 2013. What is not forthcoming is the portion of funding, if any, that has been allocated to its implementation in the early childhood sector. In addition, the criteria within funding contracts for the ECCE Scheme has created a quality divide in relation to requirements for early childhood provision as only those services delivering the free pre-school year are required to have minimum training levels and use the curriculum and quality frameworks, Siolta and Aistear. Fianna Fil believe that there should be no distinction drawn between preschool provision for 35 year-olds for which educational qualifications are required, and provision for 03 year olds for which training requirements are either absent or are primarily concerned with care and safety at the expense of child development and learning.
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Policy Actions
1. 2. 3. 4. 5. 6. The GDP ratio in relation to investment in early childhood care and education is incrementally increased over the next 10 years. Move responsibility for early childhood care and education to a single Government Department to promote cohesion. Amend the Child Care Act 1991, to ensure that all non-relative, paid childminders and School Aged Childcare Services are subject to inspection Amend Child Protection Legislation (Children First Bill) to include paid childminders Under the provision of the Child and Family Support Agency, the remit of HIQA should be extended to be responsible for all child-related services. Develop a registration process that requires those who wish to operate an ECCE service, including Childminders and School Age Childcare Services to show compliance with all statutory requirements. This will include inspection and approval prior to opening a service and a de-registration process for those who fail to meet standards. Amend the current model of inspection, which is compliance based, and replace it with a model which is based on the outcomes for children. This should include a predominant focus on the quality of services in terms of their provision for child learning, development and well-being. The Child Care (Pre-School Services) Regulations 2006 should be amended to include mandatory training levels for early childhood staff including compulsory training on child protection (see objective 2).
7.
8.
2.
3. 4.
5.
6.
7.
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OBJECTIVE 2:
Supporting and Professionalising the Early Childhood Workforce
Key recommendations:
1. A Professional Early Childhood Training Fund designed to take a whole centre approach to the training and professional development of the early childhood workforce As a condition of funding schemes, working conditions for the early childhood workforce are improved to include incentivised remuneration, paid non-contact time and an allocation of continuing professional development days Mandatory training levels are included in childcare regulations Existing childcare and education training programmes are reviewed and fit for purpose.
2.
3. 4.
Context
National and international research has established that the skills and qualifications of adults working with young children is a critical factor in determining the quality of young childrens early learning experiences. The levels of effective early childhood care and education in early childhood services depends on having highly skilled and trained staff, and a high ratio of staff to children. Pobal, which administers the childcare support programmes on behalf of the Department of Children and Youth Affairs, compiles an Annual Survey of the Early Childhood Sector. For the 2012 approximately 3,137 of these services (out of over 4,300) responded and provided information on the level of training/qualifications of 12,838 staff working directly with children.
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The survey established that the level of staff qualifications for those services who responded can be categorised as follows: Level 4 - 2.1%, Level 5 - 39.4%, Level 6 - 34.8%, Level 7 - 4.9%, Level 8 - 6.3%, Level 9/10 - 0.7%, Primary Teaching Qualification - 0.5%; Up to 86.6% of staff working directly with children have qualifications equal to or higher than FETAC Level 5 on the National Framework of Qualification. (Response to Parliamentary Question reference 32237/13) In 2010, Fianna Fil introduced minimum qualification requirements for early childhood staff under the Free Pre-School Year Scheme. However, these qualification requirements have not been extended beyond those delivering the free pre-school year and even at that, only the pre-school leader must be qualified to the minimum level. Fianna Fil proposes that now is the time to build on this and that a graduate-led, professional workforce is essential in order to achieve high quality standards in the education and care of young children, in keeping with quality provision internationally. As a consequence of the lack of implementation of the national early childhood curriculum framework (see objective 1), engagement with Aistear in a practical sense is a challenge for the workforce due to the lack of training opportunities to support the implementation of the curriculum. Training organisations are slow to include Aistear in ECCE training content leading to poor levels of student knowledge and awareness. The situation is further compounded by poor linkages between the pre-school and primary school sectors where there is inconsistency of professional development and supports between the two sectors. By enlarge, the ad-hoc nature of implementing Solta and Aistear has been further compromised by creating a quality divide in relation to requirements for early childhood provision as only those services delivering the free pre-school year are required to implement the curriculum and quality frameworks Siolta and Aistear. Anecdotal evidence suggests that this has resulted in the least qualified and experienced staff working with children under 3 years old.
of staff in line with the level of qualification; particularly when availing of the higher capitation rate. Funding allocations should carry a weighting system for community and privately run early childhood services.
Policy Actions
1. The development of a Professional Early Childhood Training Fund for the early childhood workforce with targeted, proportionally allocated funding and pre-determined conditions for participation. Through an amendment to the Child Care Pre-School Services Regulations 2006, include mandatory training levels including training in child protection for each member of staff. In the interim period, DCYA should extend qualification requirements to all ages within early childhood services, not just the Free Pre-School Year. Revise the conditions of childcare programme funding contracts as an incentive to raising quality standards for the early childhood workforce as follows: ensure higher capitation rates are passed on to staff through an agreed salary scale for the early childhood workforce in line with qualifications, levels of experience and job responsibility make provision that all early childhood services have 3 days for continuing professional development included in the allocation of days being funded Non-contact time apportioned to hours worked by staff to facilitate obligations around record keeping, observations, planning and team meetings. As a quality assurance measure, the Early Years Policy Unit should provide clear stipulations to training providers offering accredited early childhood care and education programmes around a required criteria for the delivery of such programmes including expertise, qualifications and experience.
2.
3.
4.
2.
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3. To assist the development of professional pathways for the early childhood workforce, a consistent model of staffing requirements should be adopted by early childhood services as follows: Early childhood services are supervised and led by a graduate in early childhood care and education with a minimum of 3 years experience in a supervisory role, inclusive of both services for 0-3 year olds and pre-school children. For larger early childhood services, each service component within the early childhood service (babies, pre-school, afterschool) is supervised and led by a graduate in early childhood care and education with a minimum of 3 years experience in a supervisory role. Each room is led by an early childhood educator with a minimum FETAC Level 6 in early childhood care and education. Early childhood support staff should have a minimum FETAC Level 5 in early childhood care and education with modules in special needs and pedagogical practice being mandatory components of early childhood training programmes.
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OBJECTIVE 3:
Enabling the Inclusion of Children with Special Educational Needs in Early Childhood Services
Key recommendations:
1. 2. 3. 4. The implementation of the EPSEN Act (2004) The development of a National Inclusion Policy for the early childhood sector HSE employed SEN Assistants for the early childhood sector through an accessible support structure Flexible models of early childhood provision to support the inclusion of children with more severe and complex needs including a system of dual placement throughout the country to meets childrens individual learning needs The provision of a second full, free pre-school year for children with SEN
5.
Context
Fianna Fil proposes that every child with a special educational need is enabled to access early childhood care and education services and supports the provision of education in integrated and inclusive environments, rather than specialised settings, unless it is not in the best interests of the child. Despite the progress in early childhood care and education from the mid 1990s onwards, efforts to establish inclusive practices have historically focused on children of school going age. No clear policy or guidelines have emerged for children with special educational needs participating in early childhood services, or indeed, who has responsibility for specific
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supports. Supports for children with special needs is therefore largely at the discretion of the local HSE resulting in varying levels of service across counties and regions. Assessment and provision of services for children is set out in interrelated pieces of legislation the Education Act 1998, the Education for Persons with Special Educational Needs Act 2004 (EPSEN), and the Disability Act 2005. The childs right to inclusive education is mandated through educational legislation and the Education Act and EPSEN Act focus on schools and school age-children. There is no such mandate for early childhood care and education. Under the Disability Act, the HSE deals with associated care needs. The HSE is also responsible for assessment and referrals to education providers for the pre-school age group. With the exception of the EPSEN Act 2004, references to inclusion are implicit rather than explicit within the Child Care (Pre-School Services) (Amendment no2) Regulations 2006. In 2006, the National Council for Special Education produced an implementation plan for the EPSEN Act, 2004 but at present, implementation has been deferred. Fianna Fil fully supports the commitment to a timeline for progress towards the full implementation of the EPSEN Act 2004. This will give statutory rights to children with special educational needs in relation to assessment, individual education plans, and the right to make appeals.
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ACCESSIBILITY: Whilst early childhood services are bound by equality legislation, as entitlement to the Free Pre-School Year is universal, being allocated a place is conditional on early childhood services having spaces locally. Therefore, there is no system in place to ensure that children with special educational needs or disabilities can access a place. Resource constraints in the early childhood service may prevent children that require higher staff ratios in accessing a place over children who do not. The expansion of flexible models of early childhood provision is required to support the inclusion of children with more severe and complex needs. This enables a system of dual placement between specialist and mainstream provision throughout the country to meets childrens individual learning and support needs. DURATION: It is occasionally unclear at the beginning of the childs first Free-Pre-School Year if he/she will have achieved school readiness by the end of the year. If this is the case and the child needs a second pre-school year due to developmental delay, parents have only two choices open to them to fund the childs additional time in pre-school or send the child to school. Although the Free Pre-School Year entitlement can be spread out over two years on a prorata basis, this is often disjointed and insufficient for the childs needs and the administration attached to this process is cumbersome for both parents and pre-school service providers. To eliminate this problem, Fianna Fil proposes the extension of the Free Pre-School Year to a second, full pre-school year for children with special educational needs and disabilities. APPROPRIATE TRAINING: The professional capacity of those working with children with Special Educational Needs (SEN) is a key ingredient for specialised quality care and education. A CECDE report in 2005, notes that the relatively poorly-trained early education and care workforce contributes to poor practice in relation to adapting the curriculum for children with disabilities and special education needs. At present there is no qualification requirement for those staff working with children with SEN. This in itself is a barrier to inclusion in mainstream early childhood services as staff often do not have the necessary skills and expertise to enable a child with SEN or a disability to participate. The stand alone FETAC Special Needs Module is an optional module and is not a mandatory part of childcare training.
Taking Responsibility
Under the Disability Act, the HSE is responsible for assessment and referrals to education providers for the pre-school age group. As part of this responsibility, HSE should be mandated to supply suitably trained Special Needs Assistants, employed by HSE and allocated to early childhood services as necessary and appropriate. This could be facilitated through the provision of HSE funded Enable Ireland sites to serve each county/region. Enable Ireland is contracted by the Health Service Executive (HSE) to provide, in an area, services to children and their families. Enable Ireland provides free services to children and adults with disabilities and their families from 40 locations in 14 counties. Covering childhood to adulthood, expert teams work with the individual and their family. Fianna Fil proposes that this model is provided consistently across the country to enable children and families to access support services at each stage of the childs life. A bank of trained and experienced SEN personnel should be held at local level in the HSE/Enable Ireland to facilitate the provision of a qualified and experienced panel of specialist personnel as required for mainstream early childhood work positions.
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Policy Actions
1. Commit to a timeline for progress towards the full implementation of the EPSEN Act, 2004 in accordance with the National Council for Special Education Implementation Plan 2006. 2. Develop a National Inclusion Policy for mainstream early childhood services including clear policy aims in relation to the inclusion of children with disabilities and the requirements on services. This should include guidelines on how early childhood services should liaise with Public Health Nurses, with primary schools, as well as with specialist supports such as Speech and Language Therapists. 3. Provide a second, full Free Pre-School year is provided for all children in need of SEN supports. 4. The services provided by Enable Ireland should be accessible to all counties across the country. 5. HSE should be mandated to supply suitably trained Special Needs Assistants, employed by HSE and allocated to early childhood services as necessary and appropriate. 6. Establish flexible models of early childhood provision to support the inclusion of children with more severe and complex needs including the expansion of specialist early intervention settings to promote a system of dual placement where appropriate. 7. The Professional Early Childhood Training Fund (See Objective 2) would include as a priority, funding for training to enable the early childhood workforce to provide fully inclusive experiences for children.
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OBJECTIVE 4:
Providing Accessible and Affordable Childcare to Working Parents
Key recommendations:
1. 2. 3. 4. A Government Commissioned Cost Analysis of Childcare in Ireland including cost relief proposals for working parents An extension of paid maternity leave to one year A joint transferrable paid parental leave plan, based on the existing maternity leave entitlements as an interim measure The development of School Aged Childcare Provision.
Context
There is a massive disincentive in Ireland for parents to return to paid employment due to the high cost of childcare, limited maternity leave and the lack of universal supports. The costs for childcare services in Ireland are among the highest in Europe making the issue of affordability a constant issue for parents. High costs can also drive working parents to avail of lower cost unregulated childcare services for their children. Figures from OECD (2007) show that for a typical dual-earner family seeking full-day care for two children, the cost is between 29% and 35% of the familys net income and more than 50% of the net income of a lone parent family. This is in stark contrast to the OECD average of 12-14% for both dual income and lone parent families.
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The National Consumer Agency Childcare Price Survey (2011) found the average cost of full time care for a toddler was 181 per week (Ranging from 145 to 220 per week across services nationally). In addition, the provision of School Age Childcare is seriously underdeveloped in Ireland. As statutory regulations do not apply to the provision of School Age Childcare, the sector in Ireland remains self-regulated, resulting in provision being ad hoc, expensive and varying in quality. Childcare costs can exceed mortgage payments as the largest monthly bill for families with young children. This increased strain means thousands of working parents, particularly mothers, face a stark choice of quitting work because of the high cost of childcare, or continuing their careers while losing money.
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Providing realistic solutions to this crippling anomaly presents a valuable opportunity, as it would make it possible for many parents to return to paid work; 1. Increased work opportunities for women would create additional jobs in professional childcare and if the system was shaped appropriately, it would bring some of those working in childcare from the informal to the formal sector. This is essential to collecting taxes and providing those workers with social insurance. The benefits of regulation and support for the Childminding and School Age Childcare sectors would strengthen the accessibility of services and address issues around quality standards and child protection; Current childcare funding schemes for parents such as the Community Childcare Subvention Scheme could be reviewed and evaluated in terms of value for money and being fit for purpose in todays economic climate. Increased employment opportunities would provide meaningful outcomes to the courses currently on offer by State training agencies (for example as supported by the Childcare Education and Training Scheme). An incremental extension of statutory paid maternity leave from 26 weeks to 52 weeks by 2016. The adoption of a joint transferrable paid parental leave plan based on the existing maternity leave entitlements. Include paid childminders and school age childcare services in the Child Care (PreSchool Services) Regulations 2006. A capital funding programme is developed to incentivise the development of regulated school age childcare services. A government commissioned examination and analysis of existing childcare funding programmes and their ability to support and incentivise working families including: An accurate analysis of the cost of childcare in different parts of the country. This is obtainable through information submitted to DCYA in order to access funding schemes. An analysis of current childcare funding programmes in relation to their ability to support working families. In particular, a review of the CCS Scheme, in terms of value for money, sustainability and being fit for purpose in todays financial climate (increase in eligibility due to unemployment, increase in medical card allocations). Practical solutions, including for example an equitable, tiered scale of tax relief for childcare, taking into account income and number of children. or Childcare costs subvented at source based on parents ability to pay.
2.
3.
4.
Policy Actions
1. 2. 3. 4 5.
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OBJECTIVE 5:
Tackling Obesity in Early Childhood
Key recommendations:
1. 2. 3. 4. 5. A National Obesity Prevention and Treatment Strategy outlining responsibilities for all stakeholders The further development of existing obesity prevention and treatment programmes The development of a Healthy Flag Initiative for early childhood services The availability of outdoor play spaces as a mandatory requirement, for new early childhood services The inclusion of requirements for physical activity, nutrition, and exposure to digital media incorporated into the Child Care (Pre-School Services) Regulations 2006.
Context
Childhood obesity is a highly complex issue with far reaching consequences for children, their families, future generations and Irelands health care system. According to a submission to the Oireachtas Committee on Health and Children, the cost of adult obesity to the state is in excess of 1 billion euro per annum. The average child who is obese (of whom there are 100,000 in Ireland), if left untreated costs in the region of 5,000 per year as a direct cost of treating related complications in paediatric centres (2013). There are multiple stakeholders involved in tackling obesity including the food industry, media and advertising industries and the various elements of the education sector. Fianna Fil proposes that all key stakeholders are required by government to play a role in 29
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addressing childhood obesity through the direction of a National Obesity Prevention and Treatment Strategy.
A number of key factors influence the risk for obesity in an infant or young child, including prenatal influences, eating patterns, physical activity and sedentary behaviour, and also, sleep patterns, marketing and digital media. Young children are dependent on parents, caregivers, and others to provide environments that can help shape these factors in positive ways by, for example, supporting the development of lifestyle behaviours that promote growth and development, making healthy foods available in appropriate amounts, and providing safe places for active play. 30
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Therefore early childhood services have a fundamental role to play in devising policies and strategies to empower children and their parents to make healthy, nutritional and lifestyle choices.
Physical Activity
Over the past 20 years, society has changed in multiple ways that have reduced the demand for physical activity and increased the time children spend in sedentary pursuits. Increasing physical activity and reducing sedentary behaviour are logical and accepted strategies for maintaining energy balance and preventing excessive weight gain. All children should have access to outdoor play on a daily basis. However, currently there is no requirement within the childcare regulations to provide an outdoor play space or mandatory periods of outdoor play for pre-school children.
Healthy Eating
A child develops food preferences by responding to what he or she is fed and observing adults; the availability of food in the immediate environment also plays a role. Because food offered to young children is determined by caregivers, they should make every effort to introduce children to healthy foods and lifestyle habits from infancy onward. Children who have early experiences with eating healthy foods are more likely to prefer and consume those foods and to have dietary patterns that promote healthy growth and weight patterns that may then persist in later childhood.
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Policy Actions
1. A National Obesity Prevention and Treatment Strategy incorporating the health, food, media, advertising and education sectors as key stakeholders with particular responsibilities in obesity prevention and treatment. Development of and support to early intervention programmes and initiatives such as a Health Promotion Flag Initiative and the expansion of existing childhood obesity prevention programmes such as Up4it! Outdoor play space suitable for the number of children to be accommodated as a mandatory requirement of registration for new childcare facilities. Addendum added to Regulation 5 (Child Health, Welfare and Development) of the Child Care (Pre-School Services) Regulations 2006 as follows: existing early childhood services have access to outdoor play spaces on a daily basis and the programme includes a mandatory period of physical activity each day. early childhood services to provide food and snacks in accordance with the Food and Nutrition Guidelines for Pre-School Services, 2004. early childhood services to prohibit and limit exposure to digital media.
2.
3. 4.
2.
3. 4. Practice responsive feeding, including age-appropriate portions and allowing children to determine how much they eat when offering food to them. Adopt, implement and maintain a no tolerance policy to junk food, sweets, crisps and fizzy drinks in the setting and will inform parents of the importance of complying with such a policy. Undertake professional development training in promoting childrens physical activity and to develop the tools to develop health eating habits in young children. Work in partnership with parents and offer advice to parents on planning healthy meals, acting as a role model for healthy eating, creating a healthy mealtime environment at home, and providing suitable physical activities for children. Develop links and actively engage with community activities such as football, swimming and afterschool activities and act as a signpost for further information on community activities and events. Maintain a complete ban on television and limit screen time on other digital media such as computers to less than 30 minutes per day for children in sessional services or less than 1 hour per day for those in full-day services.
5. 6.
7.
8.
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REFERENCES:
Barnardos and Start Strong (2012) Towards a Scandinavian Childcare System for 0-12 year olds in Ireland. http://www.startstrong.ie/files/Barnardos_-_Start_Strong__Childcare...Briefing_Paper_final_version.pdf Barnett, W. S. (2008) Preschool education and its lasting effects: Research and policy implications. Boulder and Tempe: Education and the Public Interest Centre & Education Policy Research Unit. http://epicpolicy.org/publication/preschooleducation Centre for Early Childhood Development and Education (2005) Early Years Provision for Children from Birth to Six Years with Special Needs in two Geographical Areas in Ireland. Department of Education and Science (1999) Ready to Learn: White Paper on Early Childhood Education. Department of Education and Skills (2011) Evaluation of Initial Implementation of Solta, Goodbody Economic Consultants: December 2011. DESSA (2007) Profile of Inclusion: A Study of the Inclusion of Disabled Children in Childcare and Play Settings, p.10. Growing Up in Ireland, National Longitudinal Study of Children (July 2013) Mothers Return to Work and Childcare Choices for Infants in Ireland. Report 2. Health Service Executive and Department of Education and Skills (2012) Inspectorate Report: Joint Pilot Inspections of ECCE Early Years Services: October 2012. Department of Justice, Equality and Law Reform (2005) Developing School-Age Childcare, June 2005. Disability Equality Specialist Support Agency (2007) Profile of Inclusion Childcare Inclusion Programme A Study of the Inclusion of Disabled Children in Childcare and Play Settings; http://www.dessa.ie/Profile%20of%20Inclusion.pdf Growing Up in Ireland (2011) Overweight and Obesity Among 9-Year-Olds Report 2. Heckman, J. (2006) The Economics of Investing in Children, Dublin: UCD Geary Institute. Moloney, M. and McCarthy, E., (2010) Development of a Framework for Action for the Inclusion of Children with Special Needs in Early Childhood Education Settings. McKeown, K. and Haase, T. (2013) National Evaluation of NEYAI and Solta, Newsletter: May 2013. National Consumer Agency (2011) Childcare Price Survey, p13. OECD (2007) Benefits and Wages: OECD Indicators, Paris: OECD, p129-130. OECD (2012) Education at a Glance: OECD Indicators. Start Strong (2011) Children 2020: Cost Benefit Analysis, p. 50. Temple Street Childrens Hospital and the Irish Nutrition and Diabetic Institute (2013) Tackling Childhood Obesity: Presentation to the Oireachtas Committee on Health and Children (13th June 2013). UNICEF Innocenti Research Centre (2008) The Child Care Transition: Report Card 8.
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APPENDIX 1:
Key Developments that Shaped the ECCE Sector in Ireland 1992-2012
The table below provides an overview of some of the key developments that shaped early childhood care and education structures as we know them today.
1992
In signing the United Nations Convention on the Rights of the Child in 1992, Ireland accepted a range of international obligations concerning children's right to care and education in the early years. A ten year action programme, Quality Targets in Services for Young Children was published in 1996 by the European Commission Network on Childcare highlighted that a quality early years programme may only be achieved within a National Policy Framework. Under the Childcare Act of 1991, The Child Care (Pre-School Services) Regulations was implemented in December 1996. These regulations outlined the minimum required standards in early childhood settings and marked the first legislative control over safety and quality in childcare services in the State. Ready to Learn, the White Paper on Early Childhood Education (DES) was published in 1999. The White Paper was one of the most comprehensive documents produced on early childhood education in Ireland. The 1971 Primary School Curriculum was superseded by a Revised Curriculum in 1999 that is delivered in the infant classes in primary schools. The aim of the revised curriculum was to introduce more play based learning in infant classes to meet the needs of younger children. The National Childcare Strategy 2000, provided the blueprint for going forward and was the governments first attempt at a coherent approach to the range of issues involved in early childhood care and education services. For the first time in the history of childrens services in Ireland, an Expert Working Group on Childcare formulated 27 recommendations encompassing registration, staffing, training and pay, supply and demand strategies, and examined the organisational structures and procedures needed to implement the overall strategy. The Equal Opportunities Childcare Programme (2000-2006) (EOCP) commenced in 2000 and aimed to enable parents to avail of employment opportunities through the provision of quality childcare. Funding was provided to expand the early childhood sector and improve the quality of services for children. This consisted of capital funding for private and community childcare services and staffing grants for community childcare services. The National Co-ordinating Childcare Committee (NCCC) and 33 City and County Childcare Committees (CCCs) were established in 2000 to realise the strategys recommendations at national and local level. CCCs initially facilitated the administration of childcare programme grant assistance on behalf of the then OMCYA and in addition offered a wide variety of services including; support around setting up a childcare business; training courses and professional development 35
1996
1996
1999
1999
2000
2000
2000
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sessions and provided comprehensive support around quality practice to childcare providers at local level. 2002 The National Childminding Initiative (CMI) was launched in 2002 and provides support for Childminders and for people interested in becoming childminders. Under the initiative childminders can access quality awareness training, Childminding Development Grants and since January 2009, can achieve Voluntary Notification (VN) to County Childcare Committees. In 2002, the Model Framework for Education, Training and Professional Development for the Early Childhood Care and Education Sector (DJELR) was developed. This framework presents guidance on the professional development of those working in the early childhood sector. The Centre for Early Childhood Development and Education (CECDE) was established in 2002 to meet many of the recommendations of the White Paper. Amongst CECDEs core objectives was to develop a national quality framework that is a set of quality standards for all of the different settings where early childhood care and education takes place including infant classes in primary schools. In 2009, the CECDE was subsumed into the Early Years Policy Unit (EYPU) of the Department of Education and Skills co-located with the DCYA. The OECD Thematic Review of Early Childhood Education and Care Policy in Ireland represents a wide-ranging examination of the area in the Irish context. The report highlighted many inadequacies in Irelands ECCE system. Solta: the National Quality Framework for Early Childhood Education was published in 2006 by the Centre for Early Childhood Development and Education (CECDE) on behalf of the DES. It is a quality assurance process which addresses all aspects of practice in early childhood care and education services. The National Childcare Investment Programme (NCIP) 2006-2010 succeeded the Equal Opportunities Childcare Programme. The new Programme aimed to build on previous achievements, particularly in terms of adding further childcare places created under the EOCP. The capital funding component for the development of early childhood services within the National Childcare Investment Programme (NCIP) 2006-2010 was prematurely terminated early in 2009 due to the economic downturn. 2009 In 2009, Regulation 5 was added to the Childcare (Pre-School Services) Regulations 2006. It was a monumental step that refocused the inspection of childcare facilities away from a health and safety perspective only, to allow for the educational development of each child to play a pivotal role. Aistear: the Early Childhood Curriculum Framework was published by the National Council for Curriculum and Assessment (NCCA) in 2009. Aistear is Irelands first curriculum framework for children from birth to six years. The Workforce Development Plan for the Early Childhood Care and Education Sector in Ireland was launched in November 2010. That process has resulted in the identification of a number of agreed perspectives on the type of workforce needed to support the development of high quality ECCE service in Ireland. In January 2012, the development of a National Early Years Strategy was announced by the Department of Children and Youth Affairs. The strategy aims to provide an innovative and exciting blueprint for the future strategic development of Irelands Early Years Sector for children. The Strategy is expected in Autumn 2013.
2002
2002
2004
2006
2006
2009
2010
2012
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APPENDIX 2:
Existing Funding Supports for Childcare in Ireland
The main objective of childcare funding schemes is to assist parents to access affordable quality early childhood care and education through a series of DCYA funded schemes and grants including: 1. 2. 3. 4. The Early Childhood Care and Education Scheme (ECCE) The Community Childcare Subvention (CCS) Scheme The Childcare Employment and Training Support (CETS) Scheme The Afterschool Scheme (CETS 11)
1.
Capitation
Payment under the ECCE programme is by way of capitation fees which are paid directly to the service provider. A capitation fee is payable in respect of each eligible child enrolled in the free pre-school year, on a pro-rata basis if applicable. A higher rate of capitation is payable in respect of certain pre-school services with more highly qualified staff. Services receive a capitation of 62.50 /73 for providing a pre-school place for 3 hours per day, 5 days per week for 38 weeks of the year.
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2. COMMUNITY CHILDCARE
SUBVENTION (CCS) SCHEME
The CCS Scheme is available under the Department of Children and Youth Affairs (DCYA) to support community-based childcare services to enable them to provide quality childcare services at reduced rates to parents in receipt of state benefits. There are 3 types of Band that a Parent must fall into if they are to receive subvention, Band A, AJ and B. Band A is where a parent receives a social welfare payment and is also entitled to a medical card, Band AJ is where a parent is in receipt of Jobseekers and is entitled to a medical card and Band B is where a parent is entitled to a Medical, GP card or is in receipt of a social welfare payment/supplementary allowance and is not in receipt of a medical card. Level of Service Band A -with medical card One Parent Family Payment Widows/Widowers Pension Pre-retirement Allowance Farm Assist State Pension Blind Pension Guardians Payment Illness/Injury Benefit*** Disability Allowance Carers Benefit/Allowance Back to Work/Education Allowance Community Employment Domiciliary Care Allowance Family Income Support (FIS) HSE Referrals 95 Band AJ with medical card Job Seekers Benefit/Assistance (JB/JA)* Supplementary welfare Allowance (SWA)** Tus Part-time Job Incentive Scheme
Band B Medical Card GP Visit card Parents who are in receipt of Social Welfare payments listed under Band A/AJ but have no medical card Parents who no longer qualify for Band A/AJ this year but who were verified as being on Band A/AJ at the end of the previous school year.
*Parents in receipt of job seekers benefit/ assistance qualify for subvention on a parttime basis only i.e. no more than 5 hours per day over 5 days or 2.5 full days per week.
Full-Day Payment (5hrs+) Half-Day Payment (3.31-5hrs) Sessional Payment (2.15-3.30 hrs) Half session payment (1hr2.15hrs)
50
50
47.50
47.50
25
31.35
31.35
17
15.20
15.20
8.50
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*Parents in receipt of Jobseekers Benefit/Assistance (JB/JA) qualify and with a medical card qualify for subvented childcare to a maximum of 50 subvention per week (Band A/J). Parents in receipt of JB/JA and do not have a medical card qualify for subvented childcare under Band B. **A similar cap applies to Basic Payments under the Supplementary Welfare Allowance Scheme, as many of those in receipt of such payments are awaiting a decision on a Jobseekers Benefit/Assistance claim. In the event that this payment concludes with a successful claim which attracts a full Band A eligibility with a medical card (e.g. One parent Family Payment) then the eligibility for that payment can be back dated to the September of that given academic year for which the basic payment applied. However, the successful claim must be appealed before the deadline set by this Department in the given year. ***Parents on Illness Benefit will be reviewed during the course of the academic year. If the illness Benefit no longer applies at the review, the band will be amended accordingly.
The rates of payment for FS and VEC services will be: Full-time: 145 per week Part time: 80 per week Afterschool: 45 per week Afterschool with pickup service: 80
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ROBERT TROY TD
SPOKESPERSON ON CHILDREN
Dil ireann, Leinster House, Kildare Street, Dublin 2. Your suggestions to : www.annafail.ie
0612