National Childcare Strategy

Report of the Partnership 2000Expert Working Group on Childcare

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£5.00(PN No. 6747)© Government of Ireland 1999ISBN: 0707667208

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Fo rewo rd

E x e c u t ive SummaryA ch o i m re Fe i d h m i ú ch á i n

I n t ro d u c t i o n

SECTION ONE B a ck g round Information

Chapter 1: Social Context of Childcare Prov i s i o n 11 . 1 W hy Pa rents Avail of Childcare1 . 2 Women and Work in Ire l a n d1 . 3 Equal Opportunities1 . 4 Balancing Fa m i ly and Work Responsibilities1 . 5 P rovisions for Time Off Wo r k1 . 6 Rights of Children to Equality of Care and Education1 . 7 S u m m a r y

Chapter 2: Childcare in Ireland: Current Prov i s i o n 92 . 1 State and European Union Support for Childcare2 . 2 Number of Children Availing of Childcare2 . 3 C u r rent Childcare Service Prov i s i o n2 . 4 U s age of Childcare Services2 . 5 Price of Childcare Services2 . 6 Summary

SECTION T WO Identified Issues and Concerns

Chapter 3: Regulat i o n s , Tra i n i n g ,Q u a l i f i c ations and Employ m e n t 2 13 . 1 Child Care (Pre - S chool Services) Regulations, 1 9 9 63 . 2 Training and Qualifications3 . 3 E m p l oy m e n t , Status and Pay3 . 4 S u m m a r y

Chapter 4: Childcare Provision in Urban Disadva n t aged and Rural A r e a s 3 54 . 1 The Urban Disadva n t aged Context4 . 2 Barriers to Resourcing and Sustaining Childcare in Urban

D i s a dva n t aged A re a s4 . 3 The Rural Context4 . 4 Obstacles and Barriers to Rural Childcare Prov i s i o n4 . 5 Barriers to Childminding Prov i s i o n4 . 6 F u t u re Development of Childcare in Urban Disadva n t aged and Rural A re a s4 . 7 Models of Urban and Rural Childcare Prov i s i o n4 . 8 S u m m a r y

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C o n t e n t s

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SECTION T H R E E Principles and Rationale

Chapter 5: National Childcare Strategy: Guiding Principles 4 35 . 1 Needs and Rights of Childre n5 . 2 Equal Opportunities and Equality of Access and Pa r t i c i p a t i o n5 . 3 D ive r s i t y5 . 4 Pa r t n e r s h i p5 . 5 Q u a l i t y5 . 6 Summary

Chapter 6: Rationale for the National Childcare Strat e g y 5 16 . 1 Quality in Childcare6 . 2 Social Benefits of Childcare6 . 3 Economic Benefits of Childcare6 . 4 F u t u re Demand for Childcare in Ire l a n d6 . 5 S u m m a r y

SECTION FOUR National Childcare Stra t eg y

Chapter 7: Stimu l ating Supply and Supporting Demand 5 77 . 1 S t i mulating Supply7 . 2 Demand Side Supports

Chapter 8: Local Planning and National Co-ordinat i o n 7 18 . 1 Local Planning and Deve l o p m e n t8 . 2 National Planning and Co-ord i n a t i o n8 . 3 Key Objectives for 1999

B i bl i og ra p hy, Appendices & Glossary

B i b l i o g ra p hy 7 9A p p e n d i c e s 8 31 . 1 Membership of Expert Working Group on Childcare1 . 2 List of organisations and individuals who made submissions1 . 3 Terms of re f e rence of the Subgro u p s1 . 4 Submission by the Early Education Subgroup to the National Forum for

E a r ly Childhood Education1 . 5 Working methods of Expert Working Gro u p1 . 6 List of re s e a rch reports commissioned by the Expert Working Gro u p1 . 7 E u ropean Commission Network on Childcare: Quality Ta rgets in

Services for Young Childre n1 . 8 L e gislation and reports in the area of ch i l d c a re published since 19803 . 1 O ve r v i ew of existing training provision and accreditation in ch i l d c a re in Ire l a n d3 . 2 Model of occupational profiles for the ch i l d c a re sector5 . 1 Articles of the UN Convention on the Rights of the Child6 . 1 Benefits of early childhood education pro g rammes

Glossary & A b b r ev i at i o n s 1 1 6

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Fo r e w o r d

Partnership 2000 for Inclusion, E m p l oy m e n tand Competitive n e s s, in the context ofe q u a l i t y, p rovided for the establishment ofan Expert Working Group on Childcare. Th eExpert Working Group operated under thea e gis of the Department of Ju s t i c e, E q u a l i t yand Law Reform on foot of its re s p o n s i b i l i t yfor equality matters.

The working process of the Expert Wo r k i n gG roup was guided by the “ s p i r i t ” of thePartnership 2000 ag re e m e n t :

• “ Partnership through this nationalag reement invo l ve s, in particular, as h a red understanding of the keym e chanisms and relationships in thef o r mulation and implementationof policy.

• The partnership process reflects inter-d ependence between the partners.

• The partnership is necessary becauseno party can ach i eve its goals withouta significant degree of support andcommitment from others.

• Partnership is ch a racterised by ap roblem-solving ap p ro a ch , in whichvarious interest groups add ress jointp ro b l e m s. Partnership invo l ves tra d e -offs both between and withini n t e rest gro u p s.

• The partnership process invo l ve sd i f f e rent participants on va r i o u sagenda items, ra n ging from principlesof national macro-economic policy tospecifics of local deve l o p m e n t .

• All Social Partners accept that thebenefits of economic growth bes h a red by all citizens in a mannerthat reflects this country’scommitment to social solidarity anda better quality of life for allour people.”( Partnership 2000, C h .1 1 ) .

This spirit enabled the Expert Wo r k i n gG roup to work through the many tensionsw h i ch arose when it became clear thatd evising a National Strategy for thed evelopment of the ch i l d c a re sector was acomplex matter.

I would like to thank all the org a n i s a t i o n swho ag reed to participate in the pro c e s sand in particular all the members for theirtime and patience. Particular thanks is dueto the ch a i rpersons of the eight policys u b g roups without whose dedication thetask would have proved nigh impossible.

The work of the Expert Working Gro u pcould not have run so smoothly withoutthe excellent service provided to it by theS e c retariat which was supported by A re aD evelopment Management Limited and theC e n t re for Social and EducationalR e s e a rch ,D I T.

F i n a l ly, I would like to thank Jo h nO ’ D o n o g h u e, T. D. , Minister for Ju s t i c e,Equality and Law Reform, for his personali n t e rest in and support for the activities ofthe Expert Working Gro u p.

Sylda Langford

C h a i r p e rs o nE X P E RT WORKING GROUP ON CHILDCA R E

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Executive Summary

I n t ro d u c t i o n

C h i l d c a re provision in Ireland has, u n t i ln ow, been left entire ly to parents to arra n g efor themselve s. There is now a virtual crisisin childcare supply. As female labour forc eparticipation incre a s e s, ch i l d c a re places ared ro p p i n g ,p a r t ly because childminders areopting for alternative employment in theformal economy, p a r t ly because of theimpact of the Child Care (Pre - S ch o o lServices) Regulations, 1996 and partlybecause larger ch i l d c a re centres areexperiencing difficulty in recruiting andretaining qualified ch i l d c a re staff.

The Expert Working Gro u p was establishedunder Partnership 2000 to develop as t rategy which integrates the differe n ts t rands of the current arrangements for thed evelopment and delivery of ch i l d c a re ande a r ly educational services. The Gro u p,ch a i red by the Department of Ju s t i c e,Equality and Law Reform, had wide ra n gi n gterms of re f e rence and over seve n t ym e m b e r s, rep resenting the re l eva n tG overnment dep a r t m e n t s, social partners,statutory bodies, n o n - g ove r n m e n t a lo rganisations and pare n t s. The term‘ ch i l d c a re’ (See full definition section,p.xxii) as used by the Group means servicesp roviding care and education. The larg emembership of the Group re q u i red a mu l t i -l evel working process involving plenarysessions attended by all members, e i g h ts u b g ro u p s, e a ch focusing on a particularissue and a steering gro u p.

The Expert Working Group was faced with acomplex and ch a l l e n ging task. Its terms ofre f e rence we re wide ra n ging and mu l t i -f a c e t e d . Among the key considera t i o n sw h i ch shaped the Expert Working Gro u preport we re :

• ag reement that the needs and rights ofch i l d ren should be a primaryc o n s i d e ra t i o n ;

• recognition that the terms of re f e re n c eof the Expert Working Group we re not

d i rected to parents who choose to carefor their own ch i l d ren and that theneeds of such parents may re q u i re ad i f f e rent policy solution;

• the need to meet EU re q u i rements forE m p l oyment Guidelines and Structura lF u n d s ;

• the desirability of building on existings t r u c t u res and services for delivery ofch i l d c a re services, in a cost efficientpartnership ap p ro a ch; and

• the need to develop ch i l d c a re as al e gitimate business and the consequentc o n c ept of “ receipted expenditure ”w h i ch is fundamental to the ExpertWorking Gro u p ’s recommendations ford evelopment of the sector.

Chapter 1 : Social Context of ChildcareP rov i s i o n

The Expert Working Group has examinedthe social context of ch i l d c a re prov i s i o n , ie:

• P re s s u re for the development ofch i l d c a re has been on the nationalagenda for the past two decades andthis is reflected in the number ofnational rep o r t s, l e gislation andi n i t i a t ives since the early 1980’s.

• Pa rents use ch i l d c a re for a variety ofre a s o n s.

• D e m o g rap h i c, social and economicchanges in Ire l a n d , in particular thei n c reased participation of women in thewo r k f o rc e, h ave resulted in incre a s e ddemand for ch i l d c a re services.

• The availability and cost of ch i l d c a reand the difficulties around re c o n c i l i n ge m p l oyment and family lives are themost significant barriers to wo m e naccessing and participating in thelabour forc e.

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• As the number of employed pare n t si n c reases there is a need for a publicp o l i cy to help parents re c o n c i l ee m p l oyment and caring for theirch i l d ren in a way that ensures qualityof life for ch i l d re n ,p a rents and familiesand equality of opportunities for wo m e n .

• C h i l d c a re is one of seve ral family -f r i e n d ly policies which can ensure as t ronger balance between work andf a m i ly life.

• The Expert Working Group considersthat such policies should not be seens o l e ly as a ‘ wo m e n ’s issue’ but shouldbe advanced from a broader perspectiveto include benefits that accrue to menand ch i l d re n .

• The rights of ch i l d ren to equality of careand education are also part of thech i l d c a re debate and there has beens t rong re c o g n i t i o n , both nationally andi n t e r n a t i o n a l ly, of the benefit of qualitych i l d c a re for ch i l d re n , families andc o m mu n i t i e s.

Chapter 2: Childcare in Ireland: CurrentP rov i s i o n

C h i l d c a re provision is unco-ord i n a t e d ,variable in quality and in short supply.State expenditure on ch i l d c a re is larg e lyt a rgeted at ch i l d ren in need or ind i s a dva n t aged circumstances and mu chState expenditure arises as a by - p roduct ofother activ i t i e s. C h i l d c a re services take avariety of forms including sessionalservices (e. g .p re - s chool play g ro u p s,n a í o n ra í , Montessori sch o o l s ) ,f u l l - d ay care( e. g . nu r s e r i e s, c r è ch e s ) , ch i l d m i n d e r s, d ro p -in centres and after school care.

A survey of ch i l d c a re arra n g e m e n t sindicates that:• 17% of all ch i l d ren aged 0-9 years ava i l

of paid ch i l d c a re.

• 58% of mothers in full time work ava i lof ch i l d c a re as compared with 16% ofmothers on home duties.

• the most commonly based form ofch i l d c a re is a formal arra n g e m e n t(sessional services and full-day care ) .

• childminding in the minder’s home isthe most common arrangement amongwomen with paid jobs and the secondmost common ove ra l l .

• on ave rage ch i l d c a re prices are in therange of £44 to £71 per week for full-time care.

• the prices to parents of ch i l d c a re (as ap roportion of ave rage earnings) areamongst the highest in the Euro p e a nU n i o n . Ave rage full-day care prices inI reland are 20% of ave rage earnings.

Chapter 3: Regulat i o n s , Tra i n i n g ,Q u a l i f i c ations and Employ m e n t

The Expert Working Group has a number ofconcerns about the Child Care (Pre - S ch o o lServices Regulations, 1 9 9 6 . The notificationsystem under the Regulations is of limitedeffect and should be replaced by are gi s t ration system; there is confusionabout the recommendations onqualifications of ch i l d c a re personnel; theimplementation process is not satisfactoryand the Regulations seem to have had ana dverse effect on the availability ofch i l d c a re places.

C h i l d c a re training has developed on an adhoc basis, resulting in a diversity of tra i n i n gcourses and qualifications. M a ny ch i l d c a rewo r kers have gained skills and know l e d g et h rough experience rather than thro u g hformal training pro c e s s e s. The ExpertWorking Group proposes the deve l o p m e n tof a national fra m ework of qualifications inch i l d c a re which could encompass formaland informal training pro g rammes and thea c c reditation of prior learning.

C h i l d c a re as an occupation is genera l ly notwell paid or well re g a rd e d . The lowoccupational status accorded to ch i l d c a renot only deters male participation in thes e c t o r, but has implications for the quality

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of prov i s i o n .L ow pay has also led todifficulties in the recruitment and re t e n t i o nof ch i l d c a re staff. Th e re is a wide range ofp ay in the sector with rates of pay beingbest developed where there is publicfunding for projects and lowest amongchildminders who are paid as little as £1. 5 0per hour. M a ny community based ch i l d c a reservices depend on Commu n i t yE m p l oyment Schemes to supply staff, as as o u rce of income to meet running costsand to meet adult/child ra t i o s. The ExpertWorking Group recommends that a Jo i n tLabour Committee be set up for thei n d u s t r y.

Chapter 4: Childcare Provision in urband i s a dva n t aged and rural areas

In urban disadva n t aged are a s, ch i l d c a reservices are constrained by lack of financialre s o u rces and lack of ch i l d c a rei n f ra s t r u c t u re and support systems.Barriers include: pro h i b i t ive costs, i n a b i l i t yof services to employ trained staff, l a ck ofinformation and re s t r i c t ive opening hours.In rural are a s, barriers to ch i l d c a rep rovision include isolation, t ra n s p o r tp ro b l e m s, staff costs and the absence oft raining pro g rammes adapted to the needsof rural prov i s i o n . Urban disadva n t ag e dand rural areas re q u i re ch i l d c a re stra t e gi e sand policies which recognise the dive r s erange of functions and obstacles whichch i l d c a re services must add ress in thesee nv i ro n m e n t s.

Chapter 5: The National ChildcareS t rategy: Guiding Principles

The Expert Working Group has ag reed astatement of principles which are intendedto underpin the National Childcare Stra t e g yand guide all ch i l d c a re services. Th e re are12 principles in total which have beeno rganised under the following headings: (1)needs and rights of ch i l d re n , (2) equality ofaccess and participation, (3) dive r s i t y, ( 4 )partnership and (5) quality. The ExpertWorking Group sets the needs and rights ofch i l d ren as the primary consideration inthe strategy of ch i l d c a re.

Chapter 6: Rationale for a Nat i o n a lChildcare Strat e g y.

Quality ch i l d c a re benefits ch i l d re n ,t h e i rp a re n t s, e m p l oyers and communities ing e n e ra l . Studies show the social benefits o fe a r ly education in ch i l d re n ’s cognitive andsocial deve l o p m e n t ,p a r t i c u l a r ly for ch i l d re nf rom disadva n t aged are a s. The positiveimpact of out of school pro g rammes on thesocial and personal development of ch i l d re nhas also been demonstra t e d .Q u a l i t ych i l d c a re also benefits parents and the widerc o m munity and has an important role incombating family stress and social exclusion,p a r t i c u l a r ly within families experiencingp overty and disadva n t ag e. Economic benefitsof investing in quality ch i l d c a re are shown ata number of levels: social benefits to ch i l d re nleading to gains in human cap i t a l ,i n c re a s e de m p l oyability of parents combating skill andlabour shortag e s, i m p roving the cap a c i t y,p rofitability and sustainability of ch i l d c a rep rovision and job creation in the ch i l d c a res e c t o r. Demand for ch i l d c a r e is like ly toi n c rease by between 25% and 50% over theperiod to the year 2011. F u t u re demand forch i l d c a re is also re l evant to the nationals t ra t e g y.

Chapter 7 : Stimu l ating supply andsupporting demand

The Expert Working Group recommends sixs u p p ly side measures and five demand sidem e a s u res which will improve theavailability and affordability of ch i l d c a re inI re l a n d . These are interconnectedm e a s u r e s , all of wh i ch need to beimplemented as a pack age in order to bes u c c e s s f u l . The concept of r e c e i p t e de x p e n d i t u r e f e a t u res in most of theserecommendations as the Expert Wo r k i n gG roup considers it essential that ch i l d c a rebe brought out of the informal economyand developed as a legitimate businesswithin the services sector.A seven year time frame is env i s aged forthe development of ch i l d c a re as asustainable sector.

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The recommended measures are :

SIX SUPPLY SIDE MEASURES

• C apital gra n t s / relief for prov i d e r sTo upgrade premises to increase quality andquantity of supply

• Tax allowance for childminders To support private ch i l d m i n d e rs in tra n s i t i o nto formal economy

• E m p l oyment encouragement gra n t sTo encourage increased employment oft rained childcare staff

• Tax relief for employers investing inch i l d c a reTo support and stimulate employ e ri n v o l v e m e n t

• Funding for local level measure sTo develop after school and ch i l d c a r en e t w o rk s

• I m p rove local authority planningg u i d e l i n e sTo ensure consistency in local authorityplanning permissions for childcare services.

FIVE DEMAND SIDE MEASURES *

• C h i l d c a re subsidiesTo support low income families not in tax netto access quality services

• I m p rovements to FISTo support low earners who would notbenefit from tax relief measures

• I n c rease ceilings for lone pare n tPay m e n tTo remove disincentives for lone parentsearning over ceiling

• Personal Tax re l i e fTo support parents in tax net at standardrate based on receipts

• R e m ove treatment of ch i l d c a re asBenefit in Kind To support and stimulate employ e ri n v o l v e m e n t

Chapter 8: Local Planning and Nat i o n a lC o - o r d i n at i o n

The Expert Working Group re c o m m e n d slocal planning and national co-ord i n a t i o nm e chanisms to deliver ch i l d c a re policies. I tp roposes the establishment of countych i l d c a re committees, a national ch i l d c a rem a n agement committee and ani n t e rd epartmental policy committee onch i l d c a re. The County ChildcareC o m m i t t e e s would comprise localch i l d c a re prov i d e r s, the NGO/ch i l d c a res e c t o r, statutory bodies, social partners andp a re n t s. E a ch Committee would develop as even year county ch i l d c a re plan whichwould be submitted to the NationalC h i l d c a re Management Committee forap p rova l .

The N ational Childcare Manag e m e n tC o m m i t t e e would support, ap p ra i s e,re s o u rce and monitor the county ch i l d c a rep l a n s, c o - o rdinate national deve l o p m e n t sin the ch i l d c a re field and inform nationalp o l i cy deve l o p m e n t . The Committee wo u l dreflect the same cross sector rep re s e n t a t iveas the County Childcare Committees andwould have independent status.

The Department of Ju s t i c e , Equality andL aw Reform would be the designated l e a dd e p a r t m e n t for the National ChildcareS t rategy and would chair theInterdepartmental Policy Committee onC h i l d c a r e w h i ch would act as a linkb e t ween Government and the NationalC h i l d c a re Committees.

* These measures relate to receiptedchildcare expenses

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R e c o m m e n d ations of the ExpertWorking Group on Childcare

The Expert Working Group believes that itis essential for Government to take as t ra t e gic role to secure high quality servicesw h i ch will be accessible to all ch i l d re n ,t os e c u re an adequate ch i l d c a re wo r k f o rc e,and to develop the conditions which willoptimise their wo r k . The development andimplementation of a National ChildcareS t rategy is recommended as the first stepin such a pro c e s s. The National ChildcareS t rategy should consist of a seven ye a ri n t e g rated strategy comprising therecommendations contained in this Rep o r t .

R E C O M M E N DATION 1 (p.24): • The present system of notification

should be developed and lead to anamendment of the Child Care A c t ,1 9 9 1 ,w h i ch would provide for a system ofre gi s t ration of facilities and ch i l d c a rewo r ke r s.

• All those providing ch i l d c a re services forone or more ch i l d re n , in addition totheir ow n , including persons employe dby the parent/s of the ch i l d , either in thech i l d ’s home or in the ch i l d m i n d e r ’sh o m e, should be re q u i red to re gi s t e r.

• R e l a t ives (pare n t , g ra n d p a re n t ,s i b l i n g s,u n c l e s, aunts and step - p a rents) andg u a rdians or foster parents should beexempt from the re q u i rement tore gi s t e r.

• All ch i l d c a re providers who offerservices to ch i l d ren aged 0 to 12, a sdefined by the Expert Working Group onC h i l d c a re, should be obliged to re gi s t e runder the proposed system ofre gi s t ra t i o n .

R E C O M M E N DATION 2 (p.26): The existing notification system and thep roposed system of re gi s t ration shouldre q u i re adherence to national minimu ms t a n d a rd s, e n c o u raging ‘best pra c t i c e ’w h i ch will be developed in consultationand partnership with the NGO sector.

A common induction and tra i n i n gp ro g ramme should be provided forinspection teams to ensure that there iss t a n d a rdisation of implementation

In add i t i o n , it is recommended that onemember of the inspection team should bet rained in the area of Early Childhood Careand Education.

R E C O M M E N DATION 3 (p.27): A Garda clearance pro c e d u re at centra ll eve l ,w h i ch communicates effective ly withlocal leve l s, should be put in place top rovide clearance information in respect ofall personnel working in ch i l d c a re inw h a t ever cap a c i t y.

R E C O M M E N DATION 4 (p.29): • An occupational profile (such as the

model in Appendix 3.2) and ap p ro p r i a t equalifications should be ag reed by thep roposed National ChildcareM a n agement Committee within 12m o n t h s.

• A national fra m ework for qualificationsin ch i l d c a re should be developed inconsultation with the proposed NationalC h i l d c a re Management Committee.

• The national qualifications fra m ewo r kfor ch i l d c a re should provide pro g re s s ivep a t h ways of awa rd s, w h i ch can bea ch i eved through formal and informaleducation and training pro g rammes ort h rough the accreditation of priorl e a r n i n g .

• The future development of the ch i l d c a resector should aim to ach i eve thef o l l owing target:

A minimum of 60% of staff work i n gd i r e c t ly with children in collective servicesshould have a grant eligible basict raining of at least three years at a post-18 level, wh i ch incorporates both thetheory and practice of pedagogy and ch i l dd e v e l o p m e n t . All training should bem o d u l a r. All staff in services (bothcollective and fa m i ly day care) who arenot trained to this level should have rightof access to such training including on anin-service basis.( Ta rget 26 of theE u ropean Commission Network onC h i l d c a re action pro g ra m m e - Q u a l i t yTa rgets in Services of Young C h i l d re n ,1 9 9 6 ) .

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R E C O M M E N DATION 5 (p.30): The Expert Working Group considers itd e s i rable that ch i l d ren should have contactwith both men and women in ch i l d c a reservices and that the ch i l d c a re sectorshould aim to ach i eve the following targ e t :

Twenty per cent of staff employed in ch i l d -care in collective services should be men( Ta rget 29 of the Euro p e a nC o m m i s s i o n ’s Network on Childcareaction pro g ra m m e, Quality Ta rgets inServices for Young Childre n ,1 9 9 6 ) .M e a s u res for ach i eving this should beexamined by the National ChildcareM a n agement Committee.

R E C O M M E N DATION 6 (p.30): E m p l oyment pro c e d u res should be guidedby the following targ e t :

Services should adopt employ m e n tprocedures wh i ch emphasise the importanceof recruiting employees who reflect the ethnicd i v e rsity of the local community ( Ta rget 36of the European Commission Netwo r kon Childcare Quality Ta rgets in Servicesfor Young Childre n , 1 9 9 6 ) .

R E C O M M E N DATION 7 (p.32): A national pay scale should be establishedto reflect the social and economic value ofthe work undertaken by ch i l d c a re wo r ke r s.The mechanism proposed is a Joint LabourCommittee (JLC) which will be re q u i red toset a JLC rate for the industry.

R E C O M M E N DATION 8 (p.33): • FÁS should prioritise its Commu n i t y

E m p l oyment re s o u rces towa rd sp roviding a dedicated ch i l d c a re tra i n i n gand work experience initiative.

• FÁS should continue to deve l o pch i l d c a re training initiatives withinC o m munity Employment inconsultation with the NationalC h i l d c a re Management Committee.

• The proposed National ChildcareM a n agement Committee should exploreand support the development of otherroutes for those who wish to work in thech i l d c a re sector.

R E C O M M E N DATION 9 (P. 4 0 ) :Within the National Childcare Stra t e g y, t h eneeds of ch i l d ren and families experiencingp ove r t y, d i s a dva n t age or social exclusionshould be prioritised and re s o u rces targ e t e da c c o rd i n g ly.

R E C O M M E N DATION 10 (p. 59): • The Equal Opportunities Childcare

P ro g ramme should be expanded so thatthe supply of quality ch i l d c a re ind i s a dva n t aged areas can continue to bep hy s i c a l ly upgraded and have enhancedstaffing support.

• An additional £3.5m budget should beallocated to the Pro g ramme for each ofthe first three years of the NationalC h i l d c a re Stra t e g y.

R E C O M M E N DATION 11 (p. 5 9 ) :Enhanced capital allowances should bep rovided to group-based ch i l d c a res e r v i c e s / b u s i n e s s e s.

R E C O M M E N DATION 12 (p.59): • A new grant scheme should be

established for small scale priva t ep roviders and self-employe dchildminders not eligible for others u p p o r t s, t owa rds the capital upgra d i n gof premises to comply with the ChildC a re (Pre - S chool Services) Regulations,1 9 9 6 .

• This scheme would operate through theD epartment of Ju s t i c e, Equality and LawR e f o r m .

• A budget of £2 million should beallocated in 1999 in order to re s p o n di m m e d i a t e ly to the demand.

R E C O M M E N DATION 13 (p.60): • A special tax allowance in respect of

childminding earnings should bep rov i d e d .

• Childminding income should bed i s re g a rded when eligibility is beingdetermined for social we l f a re andancillary benefits, for example, m e d i c a lc a rd s.

• These measures would be subject torev i ew after three ye a r s.

National Childcare Strategy ix

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R E C O M M E N DATION 14 (p.61): • E m p l oyment grants of up to £5,000 for

e a ch additional new staff membere m p l oyed in private and commu n i t ych i l d c a re facilities, including sociale c o n o my initiative s, to be opera t e dt h rough County Enterprise Board s.

• A budget of £5m per annum should bed evoted to this purpose which would beringfenced specifically for ch i l d c a re.

R E C O M M E N DATION 15 (p. 6 2 ) :• E m p l oyers should be allowed to offset in

their tax returns expenditure incurred inrelation to ch i l d c a re for theire m p l oye e s. This expenditure could takethe form of provision of ch i l d c a ref a c i l i t i e s, vo u chers for ch i l d c a re, or dire c tsubsidisation of ch i l d c a re places for theirwo r ke r s.

R E C O M M E N DATION 16 (p. 6 2 ) :In 1999 and subsequent ye a r s, t h eG overnment should allocate £1 million:• t owa rds the development of after sch o o l

ch i l d c a re provision at local level whichwould include a specific tra i n i n gd i m e n s i o n , and

• t owa rds the setting up of local ch i l d c a ren e t works which would offer educationaland training support and advice toch i l d c a re providers at local leve l .

R E C O M M E N DATION 17 (p.62): • The Department of the Env i ro n m e n t

and Local Gove r n m e n t , in consultationwith the proposed National ChildcareM a n agement Committee, should set andpublish national guidelines for theg ranting of planning ap p roval forch i l d c a re facilities.

• As a matter of urg e n cy, p l a n n i n gAuthorities should include in theirD evelopment Plans, Planning Contro lGuidelines for the provision of a ra n g eof ch i l d c a re facilities. These Guidelinesshould take account of such matters asthe ch a n ging pattern of wo r k ,f a m i lys t r u c t u re and the range of ch i l d c a refacilities that are now necessary. Th eGuidelines should also take account ofthe desirability of having such facilitieslocated in the are a s, including housing

d eve l o p m e n t s, close to where the usersof such facilities live.

R E C O M M E N DATION 18 (p. 6 5 ) :• A scheme to support the ch i l d c a re costs

of low income parents participating inall training or education pro g ra m m e sp rovided by State agencies should beput in place, on the lines of the existingpilot scheme applicable to V TO S,Yo u t h re a ch and Senior Trave l l e rTraining Pro g ra m m e. The subsidy wo u l dbe administered by the re l evant tra i n i n gor education authority.

• A ch i l d c a re subsidy on similar linesshould be also paid to parents ond evelopment and adult litera cy andc o m munity education courses. Th eguidelines and eligibility for suchsubsidies should be developed by theNational Childcare Manag e m e n tC o m m i t t e e, and the subsidy should bea d m i n i s t e red locally on the basis ofreceipted expenditure provided to theLocal Childcare Committees or itsag e n t s.

R E C O M M E N DATION 19 (p.65): In recognition of the value of qualitych i l d c a re prov i s i o n , the Expert Wo r k i n gG roup recommends that the curre n tp ractice of subsidising ch i l d c a re ford i s a dva n t aged ch i l d ren under the curre n tSupplementary We l f a re A l l owance Sch e m ebe broadened to enable pare n t s, w h ocannot afford ch i l d c a re and who areu n d e rgoing training and do not qualify fora ny of the above subsidies, to purch a s ech i l d c a re places for their ch i l d re n .

R E C O M M E N DATION 20 (p.66): The specified income limit for Fa m i lyIncome Supplement should be raised on acase by case basis where families incurreceipted ch i l d c a re costs.

R E C O M M E N DATION 21 (p.67): The One Pa rent Fa m i ly Payment sch e m eshould be expanded to increase the ceilingof earnings to £16,000 on a case by casebasis where lone parents incur re c e i p t e dch i l d c a re costs.

x National Childcare Strategy

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R E C O M M E N DATION 22 (p.68): A tax relief measure at the standard rate isp roposed which would gra n t :• relief on receipted ch i l d c a re expenses of

up to £4,000 per child to all family units in respect to ch i l d ren aged 0 to 12ye a r s.

• a l l owances in respect of each ch i l d ,w i t hthe allowance for first child under 5years at £4,000 per annu m ,a n dsubsequent ch i l d ren at £3,200.

• a l l owances for ch i l d ren 5 years and ove r( s chool going ch i l d ren) at £2,000 per a n nu m .

R E C O M M E N DATION 23 (p.69): Free or subsidised workplace ch i l d c a reshould no longer be treated as benefit inkind for income taxation purp o s e s.

R E C O M M E N DATION 24 (p.70): If a tax credit system is intro d u c e d ,t h eExpert Working Gro u p ’s re c o m m e n d a t i o n sin relation to tax, FIS and other demandside subsidies should be replaced byRefundable Tax Cre d i t s.

R E C O M M E N DATION 25 (p.75): • County Childcare Committees,

consisting of rep re s e n t a t ives from allthe re l evant cross sector locals t a keholders be established.

• The primary focus of the Committeeswould be the deve l o p m e n t ,implementation and monitoring of as even year County Childcare Plan.

• The County Childcare Committeeshould co-ordinate the new and existingservices within the area and monitorimplementation of the Plan ag a i n s tag reed targ e t s, w h i ch should be set byall the stake h o l d e r s.

• A budget of £2million should beallocated for the establishment,d evelopment and implementation ofcounty structure s.

R E C O M M E N DATION 26. ( p.76): • A National Childcare Manag e m e n t

Committee be established with thesame cross sector rep resentation as theCounty Childcare Committees.

• The key objective of the Committeewould be to support, ap p ra i s e, re s o u rc eand monitor County Childcare Plans ina ddition to the co-ordination of existingnational developments in the ch i l d c a ref i e l d , and informing national policyd eve l o p m e n t .

• A budget of £0.5 million should beallocated for 1999 for the establishment,re s e a rch and development costs of theNational Childcare Manag e m e n tC o m m i t t e e.

• A budget of £0.5 million should beallocated for 1999 for national/re gi o n a lch i l d c a re organisations of a vo l u n t a r yn a t u re, who can demonstrate a cap a c i t yto support the implementation of theNational Childcare Stra t e g y.

R E C O M M E N DATION 27 (p.76): • The Department of Ju s t i c e, Equality and

L aw Reform, should be the designatedLead Department with respect to theNational Strategy for Childcare.

• This remit would be to facilitate the co-o rdination of the range of ch i l d c a reservices across dep a r t m e n t s, t os t rengthen and enhance the interfaceb e t ween all departments with a dire c tand indirect role in ch i l d c a re.

• An Interd epartmental Po l i cy Committeeon Childcare be established which willo p e rate as a link between Cabinet andthe National Childcare Manag e m e n tC o m m i t t e e.

• The Interd epartmental Po l i cyCommittee should also consider therecommendations of other re l eva n treports including the Report of theCommission on the Fa m i ly (1998) andthe Report on the National Forum forE a r ly Childhood Education (1998).

National Childcare Strategy xi

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Achoimre Fe i d h m i ú c h á i n

R é a m h r áGo dtí seo, fágadh soláthar ch ú ram leanaíin Éirinn faoi na tuismitheoirí, go huile is goh i o m l á n . D’fhéadfá a rá go bhfuilg é a r chéim anois ann i dtaca le solátharch ú ram leanaí de. Ar na cúiseanna atá leissin tá méadú ar lucht saothair ar mná iad,malairt fostaíochta á lorg ag feighlitheleanaí sa gheilleagar foirmiúil, an éifeacht abhí ag na Rialúcháin um Chúram Leanaí( R é a m h s c o i l e ) ,1 9 9 6 , agus deacra chtaí abheith ag mórionaid ch ú ram leanaí foirnecáilithe ch ú ram leanaí a earcú agus ach o i n n e á i l .

Bunaíodh an Sainghrúpa Oibre f a o iC h o m p h á i r t í o cht 2000 chun straitéis afhorbairt a dhéanfadh comhtháthú ar nacodanna difriúla a bhaineann faoi láthair leforbairt agus le soláthar ch ú ram leanaíagus sheirbhísí luathoideach a i s.Feidhmíonn an Grúpa faoin Roinn Dlí ag u sC i r t , Comhionannais agus A t h chóirithe Dlí( c a t h a o i r l e a ch); tá téarmaí leathanat agartha aige agus breis is seachtó ball. T ái o n a d a í o cht ann ag na ranna Rialtais cuí,na compháirtithe sóisialta, c o m h l a ch t a íre a ch t ú l a ,e ag ra í o chtaí neamhrialtais ag u st u i s m i t h e o i r í . Baineann an Grúpa feidhmas an téarma ‘ c ú ram leanaí’ chun seirbhísíc ú raim agus oideachais a chur i gcéill.Toisc ballra í o cht mhór a bheith ag annGrúpa bhí gá le próiseas oibre il-leibhéilina raibh seisiúin iomlánacha agus na bailli láthair, o cht bhfoghrúpa agus a ch ú ra mféin orthu go léir agus grúpa stiúrtha.

Ba chasta agus ba dhúshlánach an tasc abhí le déanamh ag an Saingrúpa Oibre. B aleathan agus ba ilghnéitheach iad natéarmaí tagartha aige. I measc nabpríomhnithe a mhúnlaightuairisc an tSainghrúpa Oibre bhí:

• gur aontaíodh go gcaithfí tús áite athabhairt do riachtanais agus dochearta leanaí;

• go n-aithneofaí nach dírithe arthuismitheoirí a thugann aire dá bpáistíféin iad téarmaí tagartha antSainghrúpa Oibre agus go bhféadfadhr é i t e a ch polasaí eile a bheith de dhíth arna tuismitheoirí sin;

• gur gá teacht le forálacha an AE maidirle Treoirlínte Fo s t a í o chta agus cistís t r u ch t ú ra ch a ;

• go mba inmhianaithe é tógáil ar nas t r u chtúir atá ann cheana ch u nseirbhísí ch ú ram leanaí a chur ar fáilagus sin ar bhonn na comhpháirtíoch t ac o s t é i f e a chtaí; ag u s

• an gá atá le cúram leanaí a fhorbairtmar ghnó dlisteanach agus anc o i n ch e ap a leanann é, is é sin“ c a i t e a chas agus admháil”,bunmholadhde mholtaí an tSainghrúpa Oibre máidirle forbairt na hearnála seo.

Caibidil 1: Comhthéacs Sóisialta Chúra mL e a n a í• Tá iniúchadh déanta ag an Sainghrúpa

O i b re ar chomhthéacs sóisialtasholáthar ch ú ram leanaí,

• Le scór bliain anuas tá brú ar an gclárgnó náisiúnta chun cúram leanaí afhorbairt agus is léir sin ó líon nad t u a ra s c á l a cha náisiúnta, ó nre a ch t a í o cht agus ó thionscnaimh eile óthús na 1980.

• Baineann tuismitheoirí leas as cúra mléanaí ar chúiseanna éag s ú l a .

• Tá éileamh breise ar sheirbhísí ch ú ra mleanaí in Éirinn de bharr athruithed é i m e ag ra f a ch a , sóisialta ag u se a c n a m a í o chta go háirithe breis denb h a n t n a cht a bheith sa lucht saothair.

• An rud is mó atá ag cur isteach ar mhnáatá ag iarraidh teacht ar an luch tsaothair agus a bheith páirteach ann nái n f h a i g h t e a cht agus costas ch ú ra mleanaí agus na deacra chtaí a bhaineannle cúrsaí fostaíochta agus cúrsaí ant e aghlaigh a thabhairt le ch é i l e.

xii Straitéis Náisiúnta i leith Chúram Leanaí

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• De réir mar atá líon na dtuismitheoirífostaithe ag dul i méid tá gá le polasaípoiblí a chabhródh le tuismitheoirí ch u nf o s t a í o cht agus cúram leanaí athabhairt le chéile ar shlí a dheimheodhc á i l í o cht na beatha do pháistí, d othuismitheoirí agus do theaghlaigh ag u scomhdheiseanna do mhná.

• Polasaí amháin de pholasaithe atác a i rdiúil le teaghlaigh is ea cúram leanaíagus d’fhéadfadh sé cothro m a í o cht níosl á i d re a dheimhniú idir cúrsaí oibre ag u scúrsaí an teag h l a i g h .

• Ní dóigh leis an Sainghrúpa Oibre gurcheart féachaint ar na polasaithe sinmar “ cheist do no mná” amháin; bachóir bonn níos leithne a bheith fúthuchun na sochair a bhainfeadh fir ag u spáistí as a chur san áire a m h .

• Cuid den díospóire a cht i leith ch ú ra mleanaí is ea cearta na leanaí chun asciar cothrom féin de ch ú ram ag u sd ’ o i d e a chas a fháil agus tá aitheantastugtha go feilmeanta, ar bhonnnáisiúnta agus idirnáisiúnta ara o n ,d o ntairbhe a bhaineann páistí, t e ag h l a i g hagus pobail as dea-ch ú ram leanaí.

Caibidil 2: Cúram Leanaí in Éirinn:An Soláthar Reat h aIs neamh-ch o m h o rdaithe é solátharch ú ram leanaí, ní d’aon ch a i g h d e á namháin é agus is tearc a líon. D í r í t e a rc a i t e a chas an stáit i leith ch ú ram leanaí arpháistí atá i ngátar nó faoi mhíbhuntáisteagus eascraíonn a lán den ch a i t e a chas sinas seach t h á i rge d’imeachtaí eile.

Tá saghsanna éagsúla seirbhísí ch ú ra mleanaí ann agus seirbhísí seisiúin saná i reamh (mar shampla grúpaí súgartha,n a í o n ra í , scoileanna Montessori), c ú ram lánlae (e. g .n a í o n l a n n a ,c r é i s e a n n a ) ,f e i g h l i t h el e a n a í , an t-ionad buail isteach agus cúra mi a r s c o i l e.

Léiríonn suirbhé a rinneadh ar shocruithech ú ram leanaí:

• go bhfuil 17% de leanaí uile na tíre idir0-9 mbliana d’aois a n-íoctar as cúra mleanaí dóibh.

• baineann 58% de mháithre a cha atá agobair go lánaimseartha leas as cúra mleanaí i gcomparáid le 16% dem h á i t h re a cha atá i mbun dualgas sab h a i l e.

• an cineál ch ú ram leanaí is coitianta násocrú foirmiúil (seirbhísí seisiúin ag u sc ú ram lán lae).

• an socrú is coitianta a dhéanann mná abhíonn ag obair agus a fhaigheanní o c a í o cht ná an cúram leanaí ag tarlú id t e a ch an fheighlí agus is é sin an socrúatá sa dara háit san iomlán.

• is é an meánréimse praghsanna ná idir£44 agus £71 in aghaidh na seachtaine -c ú ram lánaimseartha.

• Tá na praghsanna seo (mar chodán det h e a cht isteach meánach) ar chuid dena praghsanna is airde san A E . Is ionannp raghsanna ch ú ram lán lae in Éirinnagus 20% den mheánioncam.

Caibidil 3: Rialúch á i n , O i l i ú i n t ,C á i l í o ch t a íagus Fo s t a í o ch tBheadh roinnt ceisteanna ag an SainghrúpaO i b re i dtaobh na Rialúchán um SheirbhísíC h ú ram Leanaí (Réamhscoile), 1 9 9 6 .N íl á n é i f e a ch t a ch é an córas fógra atá agfeidhmiú faoi na Rialúcháin agus ba ch ó i rc ó ras cláraithe a chur ina áit; tá mearbhallag baint leis na moltaí a thag raíonn doch á i l í o chtaí phearsanra ch ú ram leanaí, n ísásúil é an córas cur i ngníomh ag u sdhealródh sé gur toradh diúltach a bhí arna Rialúcháin i dtaca le hinfhaighteach tionaid ch ú ram leanaí de.

Is ar bhonn ad hoc a forbraíodh oiliúintch ú ram leanaí agus dá dheasca sin is iomaís aghas cúrsa oiliúna agus cáilíochta atá

Straitéis Náisiúnta i leith Chúram Leanaí xiii

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a n n . Tá go leor oibrithe ch ú ram leanaí anna bhfuil scileanna agus eolas acu af u a i readar trí thaithí seachas trí phróisisfhoirmiúla oiliúna. Molann an SainghrúpaO i b re go gcuirfí frámaíocht náisiúntac á i l í o chtaí sa ch ú ram leanaí ar bun achuimseodh cláir oiliúna ar bhonn foirmiúilagus neamhfhoirmiúil araon ag u sc reidiúnú i dtaca le foghlaim roimhe sin de.

Gairm is ea an cúram leanaí nach bhfuila rdmheas air agus ní íoctar na hoibrithe gom a i t h . Baineann stádas íseal gairme lec ú ram leanaí agus seachnaíonn fir anearnáil seo; tá impleachtaí ansin maidir lec á i l í o cht an tsoláthair. Cúis eile a mbíonnd e a c ra chtaí ann maidir le foirne ch ú ra mleanaí a earcú agus a choinneáil is ea páí s e a l . Tá réimse leathan pá san earnáil seoagus baineann na rátaí is fearr leis nationscadail sin a fhaigheann airgeadú poiblíagus é chomh híseal le £1.50 san uair ináiteanna eile. Bíonn go leor seirbhísí pobailsan earnáil seo ag brath ar ScéimeannaFo s t a í o chta Pobail chun foireann as h o l á t h a r, mar fhoinse ioncaim ch u ndéileáil le costais reatha agus chun teach tleis an gcóimheas aosach/leanaí a mholtar.Molann an Sainghrúpa Oibre go mbunófaíC o m h choiste Saothair don tionscal seo.

Caibidil 4: Soláthar Chúram Leanaí ígceantair uirbeacha faoi mhíbhuntáisteagus i gceantair faoin tuat hI gceantair uirbeacha faoi mhíbhuntáiste,bíonn bac ar sheirbhísí ch ú ram leanaí toiscna hacmhainní airgeadais a bheith ineasnamh nó bonneagar ch ú ram leanaí ag u sc ó rais tacaíochta a bheith in easnamh.Imeasc na mbacanna tá: costais ró-ard ,n aseirbhísí gan a bheith in ann foireann oiltea fhostú, easpa eolais agus uaire a n t aoscailte a bheith sriantach . Ar na bacannaa áirítear i gceantair faoin tuath tá:i a rg ú l t a ch t , fadhbanna iompair, c o s t a i sfoirne agus easpa clár oiliúna a oireann dot h i m p e a l l a cht na tuaithe. Tá gá le stra i t é i s íagus le polasaithe i leith ch ú ram leanaí ad’aithneodh an réimse éag s ú i lfeidhmeanna agus bacanna is gá do naseirbhísí ch ú ram leanaí díriú orthu sna

ceantair uirbeacha faoi mhíbhuntáiste ag u si gceantair faoin tuath faoi seach .

Caibidil 5: Straitéis Náisiúnta i leithC h ú ram Leanaí: Tr e o i r p h r i o n s ab a i lTá an Sainghrúpa Oibre aontaithe saráiteas prionsabal a bheadh mar bhonn leS t raitéis Náisiúnta i leith Chúram Leanaíagus mar threoir do na seirbhísí ch ú ra mleanaí go léir. 12 prionsabal ar fad atá annagus iad eag raithe faoi na ceannteidil aleanas: (1) riachtanais agus cearta leanaí,(2) infhaighteacht agus ra n n p h á i r t í o cht arbhonn cothro m , (3) éag s ú l a ch t , ( 4 )c o m h p h á i r t í o cht agus (5) caighdeán ard .A ngad is gaire don scornach , dar leis anSainghrúpa Oibre, ná straitéis i leithch ú ram leanaí a bheith bunaithe arr i a chtanais agus ar chearta leanaí.

Caibidil 6: Réasúnú i leith Stra i t é i sNáisiúnta um Chúram LeanaíBaineann páistí, a dtuismitheoirí, f o s t ó i r íagus an pobal i gcoitinne tairbhe as cúra mleanaí den scoth. Léiríonn staidéir nabuntáistí sóisialta a bhaineann lel u a t h o i d e a chas maidir le forbairtch o g n a í o ch agus forbairt shóisialta anl i n b h , go háirithe leanaí ó cheantair faoim h í b h u n t á i s t e. Léiríodh freisin an tionch a rd e a r f a ch a bhíonn ag cláir lasmuigh denscoil ar fhorbairt phearsanta agus arfhorbairt shóisialta an linbh. B a i n e a n ntuismitheoirí agus an pobal i gcoitinne leasas cúram leanaí den scoth agus tá rólt á b h a ch t a ch aige mar le dul i ngleic le strust e aghlaigh agus eisiamh sóisialta, g oháirithe an teag h l a ch atá i ngleic leb o ch t a i n e a cht agus le míbhuntáiste.Léirítear na buntáistí eacnamaíoch a aéiríonn as infheistiú i gcúram leanaí denscoth ar roinnt leibhéal: buntáistí sóisialtaag páistí as a dtagann breis ch a i p i t i ld h a o n n a ,f o s t a í o cht bhreise dothuismitheoirí a théann i ngleic leganntanas scileanna agus lucht saothair,feabhas ar ch u m a s, ar bhra b ú s a cht agus archothbháil sholáthar ch ú ram leanaí ag u scruthú jabanna san earnáil ch ú ram leanaí.Is dócha go mbeidh ardú ar an éileamh arch ú ra m leanaí de 25% go 50% as seo go dtí

xiv Straitéis Náisiúnta i leith Chúram Leanaí

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an bhliain 2011. Baineann an t-éileamh seoa shamhlaítear leis an straitéis náisiúntachomh maith.

Caibidil 7: Soláthar a spreagadh agus tacúle héileamhMolann an Sainghrúpa Oibre sé cinn des h e a ch - chéimeanna soláthair agus cúigcinn de sheach - chéimeanna éilimh achuirfidh feabhas ar infhaighteacht agus ars h a o i re ch ú ram leanaí in Éirinn. Tá nacéimeanna seo fite fuaite ina ch é i l e , ag u sní mór iad go léir a chur i bhfeidhm marphacáiste chun go n-éireodh leo. M a rchuid de na moltaí seo go léir, n a ch mór, t ác o i n ch e ap iontu de ch a i t e a chas ag u sa d m h á i l agus is den riachtanas é dar leisan Sainghrúpa Oibre cúram leanaí a bhainta m a ch as an ngeilleagar neamhfhoirmiúilagus é a fhorbairt mar ghnó dlisteanachlaistigh d’earnáil na seirbhísí.

Samhlaítear frámaíocht ama seach tmbliana chun forbairt a dhéanamh arch ú ram leanaí mar earnáil inmharthana.

Is iad na céimeanna atá á moladh ná:

Sé Sheach-Chéim Soláthair

• Deontais ch aptitil/faoiseamh dos h o l á t h r ó i r íÁitreabh a uasghrádú chun an caighdeán aa rdú agus cainníocht an tsoláthair.

• Liúntas Cánach d’Fheighlithe Leanaí Tacú le feighlithe leanaí príobháideach aaistriú go dtí an geilleagar foirmiúil

• Deontais chun Fo s t a í o cht a Spre ag a d hSpreagadh a thabhairt chun go bhfostófa íníos mó foirne oilte ch ú ram leanaí

• Faoiseamh Cánach d’fhostóirí ainfheistíonn i gcúram leanaíR a n n p h á i r t í o cht an fhostóra a neartú agus ag h r í o s ú .

• Maoiniú do bhearta ar leibheál áitiúilL í o n raí iarscoile agus ch ú ram leanaí

• Feabhsú ar threoirlínte pleanála anúdaráis áitiúilS e a s m a cht a dheimhniú ó na húdaráisáítiúla maidir le ceadanna pleanála i leithsheirbhísí ch ú ram leanaí.

Cúig Sheach-Chéim Éilimh

• F ó i rdheontais Chúram LeanaíChun tacú le teaghlaigh ar ioncam íseal agusn a ch bhfuil sa líon cánach le go mbeadht e a cht acu ar sheirbhísí d’ard ch a i g h d e á n .

• Feabhsuithe ar Fhorlíonadh ar IoncamTe ag h l a i g hTacú leo siúd ar ioncam íseal nachmbaineann leas as bearta faoisimh ch á n a ch .

• B u a i c í o c a í o chtaí le Tuismitheoirí A o n a i ra mhéadúAn dídhreasacht a bhaint mar letuismitheoirí aonair a thuilleann níos mó náan bhuaicíocaíocht

• Faoiseamh Cánach Pe a r s a n t aTacú le tuismitheoirí sa líon Cánach ar rátaC a i g h d e á n a ch bunaithe ar admhálach a .

• Gan déileáil le cúram leanaí mar sláR a n n p h á i r t í o cht an fhostóra a neartú agus ag h r í o s ú .

Caibidil 8: Pleanáil Áitiúil ag u sComhordú NáisiúntaMolann an Sainghrúpa Oibre do nam e i c n í o chtaí sin a bhíonn ag plé le pleanáiláitiúil agus comhordú náisiúnta polasaithech ú ram leanaí a chur ar fáil. Molann sé gombunófaí coistí ch ú ram leanaí ar bhonnc o n t a e, coiste bainisteoire a chta náisiúntaar ch ú ram leanaí agus coiste polasaí idir-ranna ar ch ú ram leanaí. Is é a bheadh snaCoistí Contae um Chúram Leanaí n ásoláthróirí áitiúla ch ú ram leanaí, an earnáil

Straitéis Náisiúnta i leith Chúram Leanaí xv

Baineann na bearta seo le costais ch ú ram leanaí le hadmhalach a

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ch ú ram leanaí/NGO, c o m h l a ch t a íre a ch t ú l a , na comhpháirtithe sóisialta ag u st u i s m i t h e o i r í . Dhéanfadh gach coiste pleanch ú ram leanaí seacht mbliana don ch o n t a ea fhorbairt a chuirfí faoi bhráid an ChoisteB h a i n i s t e o i re a chta Náisiúnta um Chúra mLeanaí le faomhadh.

Dhéanfadh an Coiste Bainisteoireach t aNáisiúnta um Chúram Leanaí measúnú arna pleananna ch ú ram leanaí don ch o n t a e,tacú leo, iad a acmhainniú ag u sm o n a t ó i re a cht a dhéanamh orthu, ch o m hmaith le forbairtí náisiúnta sa réimsech ú ram leanaí a ch o m h o rdú agus faisnéis achur ar fáil ar mhaithe le forbairt anpholasaí náisiúnta. Bheadh an Coiste agt e a cht leis an ionadaíocht tra s e a r n á l a ch arna Coistí Contae um Chúram Leanaí ag u sbheadh stádas neamhspleách aige.

D’ainmneofaí an Roinn Dlí agus Cirt,Comhionannais agus A t h chóirithe Dlí marp h r í o m h ro i n n maidir leis an Stra i t é i sNáisiúnta um Chúram Leanaí agus is í adhéanfadh cathaoirleacht ar an g C o i s t ePolasaí Idir-Ranna um Chúram Leanaí abheadh ina nasc idir an Rialtas agus naCoistí Náisiúnta um Chúram Leanaí.

Moltaí an tSainghrúpa Oibre i leith Chúra mL e a n a íMeasann an Sainghrúpa Oibre gur denr i a chtanas é ról stra i t é i s e a ch a bheith ag anRialtas chun seirbhísí d’ard chaighdeán adheimhniú agus fáil orthu ag ár gcuidleanaí go léir, i dtreo is go mbeadh líonsaothair sásúil ann agus chun tosca afhorbairt inar féidir leis an obair sinbarrmhaitheas a bhaint amach . Moltar marchéad chéim sa phróiseas sin go ndéanfaíFr á m a í o cht Náisiúnta um Chúram Leanaí afhorbairt agus a chur i ngníomh. Ba ch e a r ts t raitéis chomhtháite seacht mbliana, achuimseodh moltaí na Tu a rascála seo, abheith laistiar den Fhrámaíocht Náisiúntaum Chúram Leanaí.

MOLADH 1:• Ba chóir forbairt a dhéanamh ar an

g c ó ras fógra atá ann faoi láthair ch u ngo ndéanfaí leasú ar an A cht umC h ú ram Leanaí (1991) a ch u i r f e a d hc ó ras ar fáil chun áiseanna ag u soibrithe ch ú ram leanaí a ch l á r ú .

• Is iad na daoine a chaithfeadh clárú náiad sin go léir a ch u i reann seirbhísích ú ram leanaí ar fáil do pháiste amháinnó níos mó, sa bhreis ar a bpáistí féin,agus san áireamh leis sin bheadhdaoine atá fostaithe ag tuismitheoir/í anl i n b h , bíodh sé sin i dteach an linbh nó id t e a ch an fheighlí.

• Is iad na daoine nach mbeadh orthuclárú ná gaolta (tuismitheoir, s e a n a t h a i r,s e a n m h á t h a i r, s i b l i n í ,u n c a i l í ,a i n t í n íagus leastuismitheoirí) agus caomhnóirínó tuismitheoirí altra m a .

• Ba chóir go mbeadh iachall ar gachsoláthróir ch ú ram leanaí a ch u i re a n nseirbhísí ar fáil do pháistí 0 - 12 bliaind ’ a o i s, mar atá sainmhínithe ag anSainghrúpa Oibre ar Chúram Leanaí,clárú faoin gcóras clárúcháin atá ám h o l a d h .

MOLADH 2:Ba chóir go mbeadh an córas fógra mar atáfaoi láthair agus an córas clárúcháin atá ámholadh ag teacht le híosch a i g h d e á i nnáisiúnta agus go spre agadh sé ‘ a nc l e a chtas is fearr’ a ndéanfaí forbairt air igcomhar agus i gcomhpháirtíocht leis anearnáil NGO.

Ba chóir clár comónta ionduch t ú cháin ag u soiliúna a bheith ar fáil chun gondeimhneodh foirne cigi re a chta go bhfuilcaighdeánú déanta ar an gcur i ngníomh.

A nuas air sin, moltar go mbeadh tra e n á i lfaighte ag duine den fhoireann ch i gi re a ch t asa réimse Luathoideachais agus Chúra mL e a n a í .

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MOLADH 3:Ba chóir próiseas faofa a bheith ag naG a rdaí sa leibhéal láir agus a dhéananncumarsáid éifeach t a ch leis an leibhéaláitiúil chun eolas a chur ar fáil faoi gachduine atá ag obair sa réimse ch ú ram leanaíi ról ar bith.

MOLADH 4:• Ba chóir don Choiste Bainisteoire a ch t a

Náisiúnta um Chúram Leanaí atá ámholadh aontú laistigh de 12 mí faoiphróifíl ghairme (dála na léirshamhla inAguisín 3.2) agus faoi na cáilíochtaí cuí.

• Ba chóir Fr á m a í o cht Náisiúnta i leithc á i l í o chtaí i gcúram leanaí a fhorbairt igcomhar leis an gCoisteB a i n i s t e o i re a chta Náisiúnta

• Ba chóir go gcuirfí an Fr á m a í o ch tNáisiúnta i leith cáilíochtaí i gcúra mleanaí slite forásacha cáilíochtaí ar fáilagus teacht orthu trí oideachas foirmiúilnó neamhfhoirmiúil nó trí ch reidiúnú afháil ar fhoghlaim roimhe seo.

• Ba chóir an sprioc a leanas a bheith annagus forbairt á déanamh ar an earnáilch ú ram leanaí:

Ba chóir go mbeadh íosmhéid de 60%den fhoireann a bheadh ag obair god í re a ch le leanaí i gcomhsheirbhísí idteideal deontais le haghadh bunoiliúnaar feadh trí bliana ar a laghad arleibhéal iar- 1 8 , ina mbeadh teoiric ag u sc l e a chtadh na péideolaíochta ag u sfhorbairt an linbh. Ba cheart an oiliúintar fad a bheith ar bhonn modúlach .B achóír don fhoireann go léir sna seirbhísí(comhsheirbhísí agus cúram laet e aghlaigh) nach bhfuil an leibhéal seooiliúna orthu a bheith i dteideal nahoiliúna sin ar bhonn inseirbhíse.(Sprioc 26 de Líonra Choimisiún nah E o rpa ar Spriocanna Cáilíoch t aC h ú ram Leanaí i Seirbhísí do PháistíÓ g a ,1 9 9 6 ) .

MOLADH 5:Tá an Sainghrúpa Oibre den tuairim gombeadh sé inmhianaithe teagmháil abheith ag leanaí le fir agus mná araon snaseirbhísí ch ú ram leanaí agus gur chóir donearnáil ch ú ram leanaí iarra cht a dhéanamhar an sprioc a leanas a bhaint amach :

Ba chóir gur fir a bheadh i bhfiche faoin gcéadden fhoireann atá fostaithe i gcomhsheirbhísích ú ram leanaí

(Sprioc 29 de Spriocanna Cáilíoch t aChoimisiún na hEorpa i leith Sheirbhísí doPháistí Óga, 1 9 9 6 ) .

Ba chóir don Choiste Bainisteoire a ch t aNáisiúnta um Chúram Leanaí iniúchadh adhéanamh ar na bearta is gá chun é sin abhaint amach .

MOLADH 6: Ba chóir an sprioc a leanas a bheith mart h reoir agus nósanna imeachta fostaíoch t aá gcur i ngníomh:

Ba chóir do na seirbhísí glacadh le nósannai m e a chta fostaíochta a chuireann an bhéim arfhostaithe óga a earcú agus a chuireann sanáireamh éagsúlacht eitneach an phobail áitiúil

(Sprioc 36 de Spriocanna Cáilíoch t aChoimisiún na hEorpa i leith Sheirbhísí doPháistí Óga, 1 9 9 6 ) .

MOLADH 7:Ba chóir scála pá náisiúnta a bhunú abheadh ag teacht le luach sóisialta ag u se a c n a m a í o ch obair na n-oibrithe ch ú ra ml e a n a í . Is í an mheicníocht atá á moladh náC o m h choiste Saothair (CS) a leagfadh rátaCS síos don tionscal.

MOLADH 8:• Ba chóir do FÁS tosaíocht a thabhairt

d’acmhainní Fhostaíocht Phobail armhaithe le tionscnamh taithí oibre ag u soiliúna a chur ar fáil sa réimse ch ú ra ml e a n a í .

• Ba chóir do FÁS leanúint le forbairt nadtionscnamh oiliúna sa réimse ch ú ra mleanaí laistigh den Fhostaíocht Phobailagus i gcomhar leis an gCoisteB a i n i s t e o i re a chta Náisiúnta um Chúra mL e a n a í .

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• Ba chóir don Choiste Bainisteoire a ch t aNáisiúnta um Chúram Leanaí atá ámholadh iniúchadh tacaíochta adhéanamh ar bhealaí eile a fhorbairtdóibh siúd a dteastaíonn uathu a bheithag obair san earnáil ch ú ram leanaí.

MOLADH 9:Laistigh den Fhrámaíocht Náisiúnta umC h ú ram Leanaí ba chóir tosaíocht athabhairt do riachtanais na bpáistí agus nad t e ag h l a ch úd a dtéann an bhoch t a i n e a ch t ,míbhuntáiste nó eisiamh sóisialta ibhfeidhm orthu agus ba chóir acmhainní adhíriú ina dtre o.

MOLADH 10:• Ba chóir an Clár Comhdheiseanna

C h ú ram Leanaí a leathnú i dtreo is gurféidir leanúint le huasghrádú fisiceachsholáthar ch ú ram leanaí den scoth ag u st a c a í o cht mhéadaithe ó thaobh foirnede a chur ar fáil.

• Ba chóir £3.5m a dháileadh ar an gCláragus an buiséad breise sin a bheith anng a ch bliain de na trí bliana tosaigh denS t raitéis Náisiúnta um Chúram Leanaí.

MOLADH 11:Ba chóir liúntais bhreise chaipitil a chur arfáil do sheirbhísí/ghnólachtaí ch ú ra mleanaí atá bunaithe ar ghrúpa.

MOLADH 12:• Ba cheart Scéim Dheontas nua a bhunú

do sholáthróirí príobháideacha ar scálab e ag agus d’fheighlithe féinfhostaithen a ch bhfuil i dteideal tacaíochtaí eile, id t reo is go ndéanfaí uasghrádú capitil ará i t reabh chun go mbeifí ag teacht leisna Rialúcháin Chúram Leanaí (SeirbhísíR é a m h s c o i l e ) .

• Bheadh an scéim seo ag feidhmiú trídan Roinn Dlí agus Cirt, C o m h i o n a n n a i sagus A t h chóirithe Dlí.

• Ba chóir buiséad de £2m a dháileadh airin 1999 d’fhonn fre agairt go pras doné i l e a m h .

MOLADH 13:• Ba chóir liúntas speisialta cánach a

bheith i bhfeidhm maidir le hioncam arf h e i g h l í o cht leanaí.

• Moltar nach n-áireofaí ioncam arf h e i g h l í o cht leanaí agus duine á mheasle haghaidh íocaíochtaí leasa shóisialtaagus sochair theag m h a s a ch a ,c á r t aleighis cuir i gcás.

• Dhéanfaí athbhreithniú ar nacéimeanna seo tar éis trí bliana.

MOLADH 14:• Deontais fostaíochta go dtí £5,000 do

g a ch ball breise ar an bhfoireann afhostaítear in áiseanna ch ú ram leanaí,p r í o b h á i d e a ch agus ar bhonn pobaila ra o n , agus tionscnaimh shóisialtae a c n a m a í o cha san áire a m h , iad ánoibriú trí Bhoird Fiontra í o chta Contae.

• Buiséad de £5m in aghaidh na bliana armhaithe leis an gcuspóir sin agus édírithe go sonra ch ar ch ú ram leanaí.

MOLADH 15:Beidh fostóirí in ann caiteachas ar ch ú ra mleanaí a bhfostaithe a dhíscríobh ar naf o i r m e a cha cánach . D’fhéadfadh anc a i t e a chas sin a bheith i bhfoirm áiseannach ú ram leanaí a sholáthar, éarlaisí ch ú ra mleanaí nó fóirdheontas díre a ch le hag h a i d háiteanna ch ú ram leanaí dá n-oibrithe.

MOLADH 16:Molann an Sainghrúpa Oibre go ndáilfeadhan Rialtas £1m in 1999 agus sna blianta inadhiaidh sin:

• Ar fhorbairt sholáthar ch ú ram leanaíiarscoile ar leibhéal áitiúil ina mbeadhgné shonra ch oiliúna, ag u s

• ar líonraí aitiúla ch ú ram leanaí a bhunúa chuirfeadh tacaíocht oideachais ag u soiliúna ar fáil agus comhairle dosholáthróirí ch ú ram leanaí ar leibhéalá i t i ú i l .

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MOLADH 17:• Ba chóir don Roinn Comhshaoil ag u s

Rialtais A i t i ú i l , i gcomhar leis an gCoisteB a i n i s t e o i re a chta Náisiúnta um Chúra mLeanaí atá á mholadh, t re o i r l í n t enáisiúnta a leagan síos agus a fhoilsiúmaidir le faomhadh a dhéanamh ag u spleanáil ar siúl le haghaidh áiseannach ú ram leanaí.

• Ba chóir do na hÚdaráis Phleanálaf é a chaint chuige go práinneach gombeadh Treoirlínte i leith RialúP l e a n á l a , mar chuid dá bPleanannaFo r b a r t h a , ar mhaithe le réimseáiseanna ch ú ram leanaí a chur ar fáil.Ba chóir do na Treoirlínte sin nithe achur san áireamh ar nós patrún nah o i b re a bheith ag athrú, s t r u chtúr ant e ag h l a i g h , agus an réimse áiseannach ú ram leanaí a bhfuil gá leo anois. B achóir do na Treoirlínte a chur saná i reamh chomh maith a inmhianaitheis a bheadh sé na háiseanna sin abheith lonnaithe i gceantair atá gar dol u cht úsáidte na n-áiseanna sin, e a s t á i tt i t h í o chta san áire a m h .

MOLADH 18:• Ba chóir scéim a chur i bhfeidhm ch u n

tacú le costais ch ú ram leanaí i gcástuismitheoirí ar ioncam íseal atáp á i r t e a ch i ngach clár oiliúna nóo i d e a chais a ch u i reann áisíneach t a íStáit ar fáil, dála na scéimeannap í o l ó i t e a cha atá ag feidhmiú cheana igcás V TO S, Yo u t h re a ch agus an ClárOiliúna don Lucht Taistil Sinseara ch .A nt-údarás oiliúna nó oideachais cuí ariarfadh an fóird h e o n t a s.

• Ba chóir fóirdheontas ch ú ram leanaí aran dul céanna a íoc le tuismitheoirí atáp á i r t e a ch i gcúrsa forbartha ag u sl i t e a r t h a chta d’aosaigh agus oideach a i sp h o b a i l . Ba chóir don ChoisteB a i n i s t e o i re a chta Náisiúnta um Chúra mLeanaí na Treoirlínte le haghaidh nab h f ó i rdheontas sin a fhorbairt agus cé abheadh i dteideal dóibh, agus anf ó i rdheontas á dháileadh go háitiúil arbhonn caiteachais le hadmháil achuirfeadh na Coistí Áitiúla Chúra mLeanaí nó a ngníomhairí ar fáil.

MOLADH 19:Chun aitheantas a thabhairt don luach abhaineann le dea-ch ú ram leanaí as h o l á t h a r, molann an Sainghrúpa Oibre gondéanfaí leathnú ar an nós atá ann faoiláthair cúram leanaí faoi mhíbhuntáiste abheith ag teacht faoin Scéim Liúntas LeasaFo r l í o n t a ch chun cur ar chumas nadtuismitheoirí sin nach acmhainn leo íoc asc ú ram leanaí, agus atá i mbun oiliúna ag u sn a ch bhfuil i dteideal na bhfóird h e o n t a st h u a s, áiteanna ch ú ram leanaí ach e a n n a ch dá gclann.

MOLADH 20:Ba chóir an teorainn ioncaim shonraithe igcás Fhorlíonadh ar Ioncam Te aghlaigh abheith ard a i t h e, ag féachaint ar gach cás arleith ina bhfuil costais á n-íoc, ag u sa d m h á l a cha leo, ag teaghlaigh ar ch ú ra ml e a n a í .

MOLADH 21:Moltar go leanfaí leis an scéim Ta c a í o ch tTe aghlaigh an Tu i s m i t h e o ra Aonair agus gondéanfaí leathnú uirthi chun anbuaicioncam de £16,000 a mhéadú, agf é a chaint ar gach cás ar leith ina mbeadhcostais le hadmhálacha á n-íoc agtuismitheoir aonair i leith ch ú ram leanaí.

MOLADH 22:Moltar beart faoisimh ch á n a ch ar an rátac a i g h d e á n a ch a thabharfadh:

• faoiseamh ar ch a i t e a chas ar ch ú ra ml e a n a í , le hadmhálach a , suas go dtí£4,000 in aghaidh an pháiste do gachaonad teaghlaigh i dtaca le leanaí idir 0agus 12 bliain d’aois de.

• liúntas i dtaca le gach páiste de, a nlíuntas don chéad leanbh faoi 5 blianaar £4,000 in aghaidh na bliana ag u s£3,200 i gcás gach páiste eile.

• liúntas do pháistí 5 bliana agus os achionn (páistí scoile) ar £2,000 inaghaidh na bliana.

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MOLADH 23:Ná meastar cúram leanaí sa láthair oibrefeasta - pé acu saor in aisce nó lef ó i rdheontas - mar shochar le hábharmaidir le cúrsaí cánach .

MOLADH 24:• Má chuirtear córas ch reidmheas cánach

ar fáil ba chóir Creidmheasanna CánachIn-aisíoctha a chur in áit mholtaí antSainghrúpa Oibre maidir le cáin FITagus fóirdheontais láithreán éilimh eilen a ch iad.

MOLADH 25:• Go mbunófaí Coistí Contae um Chúra m

Leanaí ar a mbeadh ionadaithe ó nacoimeádaithe geallta áitiúla cuít ra s e a r n á l a cha go léir.

• Príomhfhócas na gCoistí ná forbairt,feidhmiú agus monatóire a cht adhéanamh ar Phlean Chúram Leanaí 7mBliana don Chontae.

• Ba chóir don Choiste Contae umC h ú ram Leanaí na seirbhísí atá ann faoiláthair agus na seirbhísí nua ach o m h o rdú laistigh den cheantar ag u sfeidhmiú an Phlean a iniúchadh arbhonn monatóire a chta agus naspriocanna a bheith ar aigne i gcónaí,spriocanna a leagfaidh síos nacoimeádaithe geallta go léir eatarthu.

• Ba chóir buiséad de £2m a dháileadh armhaithe le struchtúir chontae a bhunúa fhorbairt agus a chur i ngníomh.

MOLADH 26:• Go mbunófaí Coiste Bainisteoire a ch t a

Náisiúnta um Chúram Leanaí agus ani o n a d a í o cht chéanna thra s e a r n á l a ch isa bheadh ar na Coistí Contae umC h ú ram Leanaí.

• Príomhfheidhm an Choiste ná tacú lePleananna Chúram Leanaí nag C o n t a e t h a , iad a mheas is aacmhainniú agus monatóire a cht adhéanamh orthu chomh maith lec o m h o rdú a dhéanamh ar a bhfuil

d’fhorbairtí náisiúnta cheana féin ar anréimse ch ú ram leanaí agus faisnéis achur ar fáil ar mhaithe le forbairt arpholasaí náisiúnta.

• Ba chóir buiséad de £0.5m. a dháileadhin 1999 ar chostais bhunú, t h a i g h d eagus fhorbairt an ChoisteB h a i n i s t e o i re a chta Náisiúnta umC h ú ram Leanaí.

• Ba chóir buiséad de £0.5m a dháileadhin 1999 ar eag ra í o ch t a ín á i s i ú n t a / r é i giúnda ch ú ram leanaí afheidhmíonn ar bhonn deonach agus achruthaíonn go bhfuil siad in ann tacúle cur i bhfeidhm na Fr á m a í o ch t aNáisiúnta um Chúram Leanaí.

MOLADH 27:• Ba chóir go n-ainmneofaí an Roinn Dlí

agus Cirt, Comhionannais ag u sA t h chóirithe Dlí mar Phríomh-Roinnmaidir leis an bhFr á m a í o cht Náisiúntaum Chúram Leanaí.

• Is é an dualgas a bheadh uirthic o m h o rdú a dhéanamh ar réimse naRann atá ann ch e a n a , an comhéadanidir na Ranna go léir a neartú agus am h é a d ú , na Ranna sin a bhfuil róld í re a ch nó indíre a ch acu i leith ch ú ra ml e a n a í .

• Go mbunófaí Coiste Polasaí Idir-Ranna ad’fheidhmeodh mar nasc idir anC h o m h - A i re a cht agus an CoisteB a i n i s t e o i re a chta Náisiúnta um Chúra mL e a n a í .

• Ba chóir don Choiste Polasaí Idir- R a n n am a chnamh a dhéanamh chomh maithar na moltaí a fuarthas óTh u a ra s c á l a cha ábhartha eile ch o m hmaith leis an Tu a rascáil Dheiridh óChoimisiún an Te aghlaigh (1998) ag u san Tu a rascáil ar Fhóram Náisiúnta anL u a t h o i d e a chais Óige (1998).

xx Straitéis Náisiúnta i leith Chúram Leanaí

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I N T RO D U C T I O N

Why Ireland needs a Childcare Strat e g y

The ap p ro a ch taken to ch i l d c a re in Ire l a n dup to now has been to leave it almoste x c l u s ive ly to parents to arrange fort h e m s e l ve s. This ap p ro a ch wo r ked while wehad a high rate of unemployment andwhile the majority of women opted to leavethe wo r k f o rce to care for their ow nch i l d re n .

Changed social and economic conditionsand expectations have resulted in morewomen opting to combine work and familyresponsibilities at a time when theavailability of childminders and places inch i l d c a re centres are contra c t i n g . The bulkof childminding has been carried out in theinformal economy, m a i n ly by women wholeft the wo r k f o rce to care for their ow nch i l d re n . With the growth in jobopportunities many of these women areopting for alternative employment in theformal economy, w h e re they commandhigher rates of pay than can be earnedt h rough childminding in the informale c o n o my. This change has resulted in asignificant drop in the availability ofch i l d m i n d e r s.

The second reason for the drop in theavailability of places is the impact of theChild Care (Pre - S chool Services)R e g u l a t i o n s, 1 9 9 6 , under the Child Care A c t ,1 9 9 1 ,w h i ch commenced in Ja nuary 1997.Health boards have been carrying outinspections of ch i l d c a re centre s. M a nych i l d c a re centres are not meeting thes t a n d a rds re q u i red under the Regulationsand are opting to close rather than makethe investment re q u i re d . Their pro f i tm a rgins are often too narrow to meet thecosts of increased staff ratios and of thep hysical improvements re q u i re d . Th emajority of these are small scale prov i d e r swho provide the service in their own home.

The third reason for the drop in places isthe difficulty which the larger ch i l d c a rec e n t res are experiencing in recruiting and

retaining qualified ch i l d c a re staff. C h i l d c a restaff have tra d i t i o n a l ly been low paidwo r kers and in a buoyant economy thesea re being attracted away from ch i l d c a re tohigher paid employ m e n t .

Fo u r t h ly, p a rents in need of ch i l d c a re forbabies and parents in need of ch i l d c a replaces on a part-time basis have difficultyaccessing ch i l d c a re. This is larg e ly due tothe fact that the Regulations re q u i re higherstaff ratios for babies, w h i ch increases thecost for the prov i d e r. L i kew i s e, a part-timeplace increases cost for the provider whenthe place could be allocated to a pare n tseeking full-time care.

F i n a l ly, m a ny parents are not entire lyh ap py with the quality of the ch i l d c a reservice they use for their ch i l d ren butc o n t i nue to use it because of lack ofa l t e r n a t ive prov i s i o n .

The interactions of the increase in thenumber of women with ch i l d ren ch o o s i n gto combine work and family life with thed e c rease in the availability of ch i l d c a replaces has caused a virtual crisis inch i l d c a re. The crisis is further exacerbatedin that with the improvements in thequality of ch i l d c a re, the price of ch i l d c a re isi n c re a s i n g . As a re s u l t ,m a ny women whowould like to combine work and family lifecannot afford to work except those inhigher income gro u p s.

Expert Working Group on Childcare

The Expert Working Group on Childcare1

was established in Ju ly 1997 as a result of acommitment in Partnership 2000 forI n c l u s i o n ,E m p l oyment andC o m p e t i t ive n e s s, to devise a nationalf ra m ework for the development of thech i l d c a re sector in Ire l a n d . In placing thed evelopment of a national fra m ewo r kwithin the context of gender equality it isrecognised that “ ch i l d c a re is clearly animportant issue in promoting equality forwomen and especially in promoting equalopportunities in employ m e n t ” .( Partnership 2000, p a r. 5 . 6 . )

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1Th roughout the rep o r t , the term ‘Expert Working Group’ will be used to refer to the Expert Working Group on Childcare.

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The aim of the Expert Working Gro u p, as setout in Partnership 2000, was to develop as t rategy which integrates the differe n ts t rands of the current arrangements for thed evelopment and delivery of ch i l d c a re ande a r ly educational services.

Responsibility for chairing the Group wa sassigned to the Department of Ju s t i c e,Equality and Law Reform and theD epartment also provided the Secre t a r i a t .I na dd i t i o n ,A rea Development Manag e m e n tLimited (ADM) provided tech n i c a l ,o p e rational support and advice to theD epartment on the implementation of thep rocess and the Centre for Social &Educational Research (CSER) we re engag e dfor editorial support. While Partnership 2000refers to the development of a nationalch i l d c a re fra m ework the Expert Wo r k i n gG roup has decided to refer to a nationalch i l d c a re stra t e g y, as the wo rd ‘ f ra m ewo r k ’could be interp reted as meaning thed e l ivery mechanisms only.

Terms of ReferenceThe terms of re f e rence of the Group we red rawn from Partnership 2000 and we re asf o l l ow s :“ The Group will consider the conclusions ofthe Working Group on the Job Potential ofC h i l d c a re, and the ESRI survey of ch i l d c a rea r rangements curre n t ly being undertake non behalf of the Commission on the Fa m i ly,as well as the following specific issues:

• quantification of the job potential of thech i l d c a re sector;

• implementation of Part VII of the ChildC a re A c t ,1 9 9 1 ,w h i ch provides for thei n t roduction of regulations gove r n i n gsafety and health standards in pre -s chool services and accompany i n gg u i d e l i n e s ;

• the establishment of a nationalre gi s t ration system for ch i l d c a re r s ;

• the establishment of a nationallyrecognised system of certification anda c c reditation for ch i l d c a re wo r ke r sp roviding for an ap p ropriate minimu mq u a l i f i c a t i o n ;

• subject to the evaluation of the curre n t

pilot pro j e c t2, the implications of thephased extension of the Early StartP ro g ramme to all areas with continu i n gpriority being given to areas ofd i s a dva n t ag e ;

• the financing of ch i l d c a re provision by avariety of means in the interest ofa f f o rdable and a c c e s s i b l ech i l d c a re.” ( Partnership 2000, p a ra .5 . 7 ) .

Membership of the Expert Working Group

The Department of Ju s t i c e, Equality andL aw Reform decided that membership ofthe Expert Working Group should be asi n c l u s ive as possible, rep resenting all thes t a keholders with an interest in thed evelopment of ch i l d c a re. This strategy wa sadopted to ensure the development of ac o m p re h e n s ive national strategy whichwould meet the needs of all ch i l d ren andp a rents and take into account the views ofas many ch i l d c a re interests as possible. Th e80 members rep resented the re l eva n tG overnment dep a r t m e n t s, social partners,statutory bodies, n o n - g ove r n m e n t a lo rganisations and pare n t s. A full list of themembership can be found in Appendix 1.1.

Definition of ch i l d c a r e

The Expert Working Group ag reed that theterm ‘ ch i l d c a re ’ , as used by the Gro u pwould refer to services providing care ande d u c a t i o n ,w h i ch are viewed by the ExpertWorking Group as being complementaryand insep a ra b l e. This is to distinguish theuse of the term from its use within thewider health sector, w h e re the term ‘ C h i l dC a re Services’ refers to the variety ofservices for ch i l d ren up to the age of 18years in need of the care and protection ofthe State.The following was ag re e d :• the term ch i l d c a re is used by the Expert

Working Group to describe day c a refacilities and services for pre - s ch o o lch i l d ren and school-going ch i l d ren outof school hours.

xxii National Childcare Strategy

2: The Evaluation of the Early Start Pro g ramme carried out by the Educational Research Centre, D r u m c o n d ra , Dublin 9, although complete,

was not made available to the Expert Working Gro u p

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• it includes services offering care,education and socialisationopportunities for ch i l d ren to the benefitof ch i l d re n ,p a re n t s, e m p l oyers and thewider commu n i t y. Th u s, services suchas pre - s ch o o l s, n a í o n ra í ,d ay c a res e r v i c e s, c r è ch e s, p l ay g ro u p s,childminding and after- s chool gro u p sa re included, but schools (primary,secondary and special) and re s i d e n t i a lc e n t res for ch i l d ren are excluded.

The Expert Working Group also ag reed thatthe ag e - g roup to be considered would bech i l d ren aged 0 to 12 years inclusive.

S u b m i s s i o n sThe Expert Working Group sought writtensubmissions from the public on their view sas to what should be considered asessential elements in the development of anational strategy for ch i l d c a re. A total of135 we re re c e ived and the common issuesarising are rep resented below in order off re q u e n cy :

• High quality training of ch i l d c a rewo r kers is essential 3 4 %

• Need for State support for ch i l d c a rep rovision 2 4 %

• Quality ch i l d c a re provision must beavailable and affordable to all 1 6 %

• Equality of access and participation forall ch i l d ren 1 6 %

• R e gi s t ration of ch i l d c a re wo r kers andfacilities 1 6 %

• Need for co-ordination of policy 1 6 %• Recognition of accredited prior learning

(APL) 1 0 %• Needs and rights of ch i l d ren must be

f o remost consideration 7 %• Needs and rights of ch i l d ren with

special needs 5 %• Call for invo l vement of men in ch i l d c a re

services 5 %• E m p l oyers have responsibilities in

p roviding for ch i l d c a re 5 % .

The issues raised we re incorp o rated in thed e l i b e rations of the Expert Working Gro u p.A complete list of the organisations andi n d ividuals who made submissions can befound in Appendix 1.2.

Wo rking MethodsThe large membership and work pro c e s sre q u i red that the Expert Working Gro u po p e rate at three leve l s. These we re :• Plenary sessions attended by all

m e m b e r s,• Eight subgro u p s, e a ch focusing on a

particular policy issue,• A Steering Group which comprised the

C h a i rp e r s o n ,S e c re t a r i a t , ch a i rpersons ofe a ch of the subgro u p s, a n drep re s e n t a t ives from ADM and theD epartment of Education and Science.

The following subgroups we re established:• G roup 1 c o n s i d e red the financial and

e m p l oyment implications of ani n t e g rated ap p ro a ch to the provision ofch i l d c a re facilities in Ire l a n d .

• G roup 2 c o n s i d e red the re gi s t ra t i o n ,t raining and qualifications of ch i l d c a rewo r ke r s.

• G roup 3 c o n s i d e red the re s o u rcing andsustaining of ch i l d c a re within urband i s a dva n t aged are a s.

• G roup 4 c o n s i d e red the re s o u rcing andsustaining of ch i l d c a re within rura la re a s.

• G roup 5 c o n s i d e red regulations ands t a n d a rd s.

• G roup 6 c o n s i d e red the educationalaspects of ch i l d c a re services.

• G roup 7 c o n s i d e red the needs and rightsof ch i l d ren in relation to a nationalf ra m ewo r k .

• G roup 8 c o n s i d e red equality of accessand participation in relation to anational fra m ewo r k .

Terms of re f e rence and detailed objective swe re ag reed for each subgroup (seeAppendix 1.3).

Two of the subgroups had particular linkswith other initiative s. G roup 5 had beenestablished by the Department of Healthand Children to monitor theimplementation of the Child Care (Pre -S chool Services) Regulations, 1996 and wa si n c o rp o rated into the Expert Wo r k i n gG ro u p. The aim of the Early EducationS u b g roup (Group 6), was to co-ordinate thev i ews of all members of the Expert Wo r k i n gG roup in relation to early ch i l d h o o d

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education and to make these known at theNational Forum for Early ChildhoodE d u c a t i o n ,w h i ch took place in March ,1 9 9 8 .A copy of the Expert Working Gro u p ’sstatement to the National Forum is atAppendix 1.4.

Appendix 1.5 presents a diag ra m m a t i crep resentation of the working methods ofthe Expert Working Gro u p.

The Expert Working Group alsocommissioned a number of re s e a rchp ro j e c t s, the results of which haveinformed this report (see Appendix 1.6).

Other developmentsC o n t e m p o raneous with the work of theExpert Working Group on Childcare during1997 and 1998, was the work of theCommission on the Fa m i ly (Department ofS o c i a l ,C o m munity and Fa m i ly Affairs) andthe National Forum for Early ChildhoodEducation (Department of Education andS c i e n c e ) .

Some considerations wh i ch shaped theExpert Working Gro u p ’s Report

The Expert Working Group was faced with acomplex and ch a l l e n ging task. Its terms ofre f e rence we re wide-ra n ging and mu l t i -faceted and its membership larg e. It had toa dd ress a diverse range of issues includingthe needs of ch i l d re n , the acute problem ofch i l d c a re supply, a f f o rdability of ch i l d c a re,regulation and standard s, the number ofchildminders in the informal economy andthe particular problems faced by urband i s a dva n t aged and rural are a s. Its larg emembership brought together a wealth ofexperience and knowledge on ch i l d c a re butit also showed how disparate thep e r s p e c t ives on ch i l d c a re can be, d ep e n d i n gon the back g round of the personsc o n c e r n e d . For example, some memberss aw ch i l d c a re as being essentially aboutenabling women to enter the labourm a r ket; others we re mainly concerned withthe needs of disadva n t aged areas; andothers saw the quality of ch i l d c a re as being

the key issue. Th e re we re manycomplexities and tensions which needed tobe add ressed and difficulties to beove rcome in the deve l o p m e n tof the stra t e g y.

The Group ag reed that the needs ofch i l d ren and their right to access qualitys e r v i c e s, re g a rdless of their social andeconomic back g ro u n d , should be theprimary consideration in the deve l o p m e n tof a National Childcare Stra t e g y.Th roughout all the deliberations of theExpert Working Gro u p, the needs and rightsof ch i l d ren we re placed centre stag e.

One of the issues which emerged for theExpert Working Group at an early stage wa sthat of support for parents who choose toc a re for their own ch i l d re n . It re c o g n i s e dthat the essential difference between theneeds of parents who care for their ow nch i l d ren and those who avail of ch i l d c a reservices is that the use of ch i l d c a ren e c e s s a r i ly invo l ves third parties whop rovide a service for the parent(s) - Pa re n t swho use ch i l d c a re are service users whore ly on having an adequate provision ofgood quality service available to them at aprice they can afford . The Group re c o g n i s e dthe desirability of bringing forwa rdm e a s u res to assist parents who wo r koutside the home as well as measures forp a rents who choose to care for their ow nch i l d re n . It considered that these we re twod i f f e rent policy objective s, and there f o ret wo different policy solutions should beap p l i e d . If the two situations are treated asone policy issue, e. g . by increasing ch i l dbenefit for all or by universal tax cre d i t s,the impact on the development of ch i l d c a reservices could be negligi b l e. U n ive r s a lp o l i c i e s, at the level at which the Exch e q u e rcould afford them, a re unlike ly to result ini m p roving either the quality or quantity ofch i l d c a re services.

The Expert Working Group wa s, under itsterms of re f e re n c e, d i rected towa rd sconsidering ch i l d c a re for parents in thelabour forc e, or trying to access the labourf o rc e. The Expert Working Group did not,

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t h e re f o re, extend its recommendations top a rents who work in the home.N eve r t h e l e s s, it should be recognised thati m p roving the quality and quantity ofch i l d c a re will also have a positive impacton parents who choose to care for theirch i l d ren at home since 16% of ch i l d re nwith parents who work full-time in thehome avail of paid ch i l d c a re.

An important consideration whichinfluenced the deliberations of the ExpertWorking Group was the need to develop ach i l d c a re strategy to meet Euro p e a nE m p l oyment Guidelines and Structura lFund criteria. The 1999 Euro p e a nE m p l oyment Guidelines call on MemberStates “to design, implement and pro m o t ef a m i ly friendly policies, i n c l u d i n ga f f o rd a b l e, accessible and high quality careservices for ch i l d ren as well as parental andother leave sch e m e s ” . In its comments onI re l a n d ’s National Employment Plan for1 9 9 8 , in relation to ch i l d c a re the EU saidthat “the policy focus must now shiftt owa rds a more effective implementation ofthe reform pro c e s s ” .I re l a n d ’s ch i l d c a rei n f ra s t r u c t u re is mu ch we a ker than that ofour EU counterp a r t s. The Expert Wo r k i n gG roup was conscious that if a nationalch i l d c a re strategy is not developed theresult could be criticism of Ire l a n d ’sNational Employment Action Plans and ina dd i t i o n , f o r f e i t u re of Structural Funds for2000 - 2006 because of failure to satisfy theequal opportunity policy re q u i rements ofthe regulations for structural funds under akey criterion for ch i l d c a re infra s t r u c t u res u p p o r t .

The strategy put forward by the ExpertWorking Group represents a consensus ofthe views of the Expert Working Gro u p.The Group sought to develop a balancedp a ck age of measures which would take intoaccount the needs of all sectors of societyand would deal with both the supply anddemand sides of ch i l d c a re. The ExpertWorking Group has developed ani n t e rd ependent pack age of measure sw h i ch it believes add resses all thedimensions of ch i l d c a re in an ap p ro p r i a t eand balanced way.

The Expert Working Group did not seek toput forwa rd an ambitious and costly ‘ w i s hl i s t ’ . It sought to develop a wo r k a b l es t rategy which would not entail extre m ec o s t s.

The Group took the view that its stra t e g yshould build on existing structures ands e r v i c e s. It was felt that it would not becost-efficient to try to establish an entire lyn ew ch i l d c a re service. The Group alsorecognised that ch i l d c a re could not becompartmentalised (e. g . as a labour marke tm e a s u re, an education measure or a carem e a s u re) and ag reed that harnessing andc o - o rdinating of the services which alre a dyexist in various Government Dep a r t m e n t s,State Agencies and the voluntary sectorrep resented the best way forwa rd ford evelopment of the sector.

The Expert Working Group recognised that,given the multiplicity of policies and tasksi nvo l ve d , a ch i l d c a re strategy would takesome time to deve l o p. It env i s aged that thes t rategy would have a seven year time-s p a n ,w h i ch would coincide with the time-f rame of the next National Deve l o p m e n tP l a n . It believes that the structures for co-o rdination and delivery of ch i l d c a re atnational and local levels could be bro u g h tto maturity in that time. A seven ye a rperiod would be needed to develop aquality wo r k f o rc e. A seven year periodwould also be ap p ropriate for the opera t i o nof tax incentives and schemes outlined inC h apter 7, it is env i s aged that suchi n c e n t ives would taper off towa rds the endof that period.

C e n t ral to many of the measures being putf o r wa rd by the Expert Working Group forthe development of the ch i l d c a re sector isthe concept of receipted expenditure. Th eG roup concluded that demand sidesupports should be tied to re c e i p t e de x p e n d i t u re in order to bring ch i l d c a re outof the informal economy and facilitate itsd evelopment as a legitimate businesswithin the services sector and contribute tothe ove rall quality of ch i l d c a re. It wa sc o n s i d e red that this was necessary in ord e rto give ch i l d c a re wo r kers and ch i l d m i n d e r s

National Childcare Strategy xxv

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the recognition and value they deserved inIrish society. What has been deve l o p e d ,t h e re f o re, is a set of interd ep e n d e n tm e a s u re s, w h i ch must be put in placetogether and which the Expert Wo r k i n gG roup considers will not work ifimplemented in an isolated way.

In conclusionThis report is the culmination of a lengthyc o n s u l t a t ive process which has beensupported by national and internationalre s e a rch . It presents a seven year stra t e g yfor the development of the ch i l d c a re sector,including policy recommendations and thes t r u c t u res and mechanisms for a needs-ledplanning ap p ro a ch at county leve l , within anational fra m ewo r k . It has been deve l o p e din consultation and partnership, a n dp roposes a shared vision for the future ofch i l d c a re in Ire l a n d .

As a society we will be failing to meet theneeds of many children and parents if wefail to develop a strategy for good quality,a f f o r d able and accessible ch i l d c a r e .Families are the core of our society, b u tm a ny of them are under pressure tryingto combine work and family life. We mu s tsupport them in new ways wh i ch reflectthe new challenges wh i ch they face in ara p i d ly changing society. This Report setsout how this can best be done.

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