Since the introduction of the ECCE pre-school programme in 2010, a higher rate of capitation has been applicable to services that meet higher qualification requirements for staff delivering the programme. The primary requirement is that room leaders in the ECCE programme should have a relevant Bachelor’s degree (level 7 or higher on the National Framework of Qualifications). A Focused Policy Assessment of the ECCE Higher Capitation Payment published in 2020 noted the positive impact of this financial incentive in promoting professionalisation. For example, the overall proportion of staff working in early learning and care (ELC) services with a qualification at Level 7 or higher more than doubled from 13% at end 2013 to almost 27% by May 2020.
The Focused Policy Assessment also identified challenges of the Higher Capitation payment, including its limitation to staff delivering the ECCE programme. First 5 (the whole-of-Government strategy for babies, young children and their families) commits to a graduate-led ELC workforce, with graduates in room leader roles with young children of all ages, not just in the ECCE programme.
As the State does not employ early learning and childcare practitioners, the Deputy will appreciate that I cannot set wage levels or determine working conditions for staff in the sector. Nevertheless, I am very conscious of the need for significant improvement in pay and working conditions for practitioners in early learning and childcare services. The level of pay they receive does not reflect the value of the work they do for children, for families and for the wider society and economy. My Department has, however, over a number of years provided a range of supports to service providers to enable them to improve wages and working conditions.
In December 2020, I began a short process to examine the possibility of regulating the pay and conditions of employment of practitioners in early learning and childcare, and to examine the suitability of establishing a Joint Labour Committee (JLC) for the sector, in line with the Programme for Government commitment. In line with the provisions of the Industrial Relations Acts, and on foot of the recommendation of the report by the independent chair of the “Pre-JLC” process, the Labour Court recommended establishment of a JLC, and this recommendation in turn was accepted by the Minister for Business, Employment and Retail. The Establishment Order came in to effect on 1 July. A JLC could lead to an Employment Regulation Order, which would establish binding rates of pay and conditions for the sector.
Work is also progressing on a new funding model. The recommendations of a dedicated Expert Group are due later in 2021 and will be central to addressing both affordability and quality issues. The Expert Group’s Draft Guiding Principles to underpin a new funding model recognise the importance of the workforce in delivering quality services.
Finally, work on the Workforce Development Plan continues, with a final report expected by the end of the year.
