Ratios change: key questions

In a series of tweets last month, children’s minister Will Quince announced the government wants to change childcare ratios in England so that early years staff can look after more children than is currently allowed under the national standards.

Quince said that a consultation on the changes – which would allow one staff member to look after a maximum of five two-year-olds, instead of the current four - would be carried out before the summer recess. He said the move would mirror the children-to-staff ratios used in Scotland.

Earlier this year, the minister announced plans to visit France, the Netherlands and Sweden to see how they regulated the early years, before deciding to look closer to home for inspiration for reforms in England.

What is driving the proposal?

Quince says the proposal is about giving early years providers “greater flexibility” in how they run services at a time when childcare costs are rising and there is a workforce shortage.

“Some [providers] were pushing me to go further on ratio reform but I’ve been clear from the start that I would not compromise on safety or quality,” he says.

“This consultation is just the start of the journey. We have some of the best early years provision in the world, and I’ll continue exploring how we can be ambitious for working parents – improving flexibility and reducing the cost of childcare.”

However, early years organisations say the move is purely about cutting costs to families as part of the response to the cost of living crisis.

“How on earth can a policy that prioritises cost-cutting over children’s wellbeing and early development ever be justified?,” says Neil Leitch, chief executive of the Early Years Alliance (EYA).

What evidence is there about the negative impact of the change?

“A lot,” says Jonathan Broadbery, director of policy at the National Day Nurseries Association. “Reviews of the research evidence have highlighted that ratios are important for attachment and children’s personal, social and emotional development in early years.

A previous attempt in 2013 to raise ratios to six two-year-olds per practitioner was eventually rejected by the then coalition government because the evidence was “overwhelmingly against” changing the rules, then Deputy Prime Minister Nick Clegg said.

“The proposals were put out to consultation and were roundly criticised by parents, providers and experts alike. Most importantly, there is no real evidence that increasing ratios will reduce the cost of childcare for families,” he said at the time.

Why does it work in Scotland?

Jane Malcolm, NDNA national policy manager for Scotland, says a key difference between the two systems is that all staff are highly qualified in Scotland and the monitoring of practice differs. Every Scottish childcare setting requires a lead practitioner who is qualified to degree level and acts as a manager or deputy. Entry level workers are also required to have a Scottish Qualifications Authority qualification that is the equivalent to Level 2 NVQ in England.

Every practitioner is also responsible for undertaking continuous professional development each year. Practitioners are regulated by the Scottish Social Services Council (SSSC) and need to be registered with the council to work. The requirement to adhere to SSSC codes of practice ensures the standard of service is closely linked to the practitioner, explains Malcolm.

How long has this system been running in Scotland?

Child-to-staff ratios in Scotland have remained the same for decades. The most recent review in 2018 by the Care Inspectorate found there was “no evidence” that the existing system was failing to meet children’s needs.

Malcolm says the shift towards a degree-led workforce in childcare in Scotland began in 2006 with a government review of the sector. This backed calls for the creation of a more professional culture which, “is still a work in progress but is progressing”, she adds.

What is the standard of outcomes in Scotland?

Comparing outcomes between the early education systems in England and Scotland is like comparing “apples and pears”, says Malcolm. “It’s a different curriculum and quality framework and progress is measured against a different set of criteria.”

According to the most recent data from Scotland Care Inspectorate, 92 per cent of childminders and 88 per cent of daycare settings are “good”, “very good” or “excellent”.

In comparison, latest Ofsted data shows 97 per cent of early years settings are judged as “good” or “excellent” in England.

However, Broadbery cautions against comparing the ratings from the two countries because of the differences in demographics and the way early education and care is delivered and funded.

Does the sector support the move?

A coalition of childcare sector organisations are against the plans, including Coram Family and Childcare, Children England, Family Action, teaching unions and the Child Poverty Action Group. A petition against the changes has garnered more than 60,000 signatures and a snap poll by parenting group Pregnant then Screwed found 85 per cent of parents opposed the plans.

An EYA survey of more than 9,000 early years settings in England found that 87 per cent opposed the plans with just two per cent indicating that the changes would result in them lowering fees for parents. Only 13 per cent of nurseries and pre-schools indicated they would regularly or permanently use the new ratios, with the same small percentage predicting they would enjoy moderate or significant financial benefits from ratios changes.