Early learning and childcare (ELC): provision for 1 and 2 year olds in Scotland

3. Case studies

3.1 Introduction

As set out in Section 1.3.2, four case studies of LAs in Scotland were produced. The LAs were chosen to explore similarities and differences between areas that differ in size, rurality, and provision of ELC. The purpose of developing the case studies was to gain an in-depth understanding of the experiences of stakeholders in different areas as well as highlight good practice examples that may be important to consider for the development of the new offer. Although the areas studied have geographical and demographic differences, some challenges and themes were common across all or most areas. We begin the section below by highlighting these recurring themes and subsequently outlining the insights unique to each LA.

3.2 Common themes

3.2.1 Meeting the needs of 1- and 2-year-olds

Several important needs of 1- and 2-year-olds, which must be met within ELC settings, were highlighted by stakeholders across different case studies. This included that 1- and 2-year-olds need: (i) separate and quiet rooms to sleep in, (ii) frequent access to the outdoors, (iii) continuity of care, (iv) a nurturing environment, (v) routines (e.g., sleep) to be followed, and (vi) more supervision compared to older age groups. It was also highlighted that any new offer should be attachment-led and promote the development of a strong bond between the children and their caregivers. It was suggested that this may be easiest to foster with childminders or in nursery settings that have smaller groups of children.

To further meet the needs of 1- and 2-year-olds, stakeholders emphasised the importance of spending time with the children and building relationships with them, rather than feeling pressure to engage with them for specific tasks. This also includes having a child-focused approach, allowing children's interests and needs to guide activities. An example of good practice given by one stakeholder was a nursery that took children for walks in areas where they were likely to see animals and built a "pet shop" in one of the rooms in order to accommodate an interest in animals that both the nursery manager and the children had.

Stakeholders also emphasised that all children's needs are unique regardless of age. Some children may need more time at home with their families, while others will benefit from being in a different setting (e.g., if their home life is challenging). Furthermore, stakeholders stated that the Covid-19 pandemic has shown the importance of socialising with peers for young children's development. Some families may also benefit from settings that are able to accommodate full-time work or different shift patterns. As such, it was mentioned that giving families flexibility and choice can be key to ensuring that they access the type of support that is most suited to them and their child.

3.2.2 Meeting the needs of 1- and 2-year-olds with ASN

Stakeholders also raised several important considerations for supporting children with ASN. Childminders were suggested as being well-placed to care for children with ASN as these children may benefit from having one main carer in a more home-like environment. One childminder who was interviewed reflected on how she has been able to provide a secure environment for a child with ASN that is in kinship care, who she has cared for for nearly 7 years. She also mentioned that she developed a good relationship with both the child and the family over time and she has received advice and help from the SCMA and CI, highlighting the importance of supplying providers with sufficient support.

It was also mentioned by stakeholders that there needs to be a system in place to diagnose symptoms of ASN early on. Providers also need to be well-equipped to support children with ASN, which may include having fewer children per staff member in some settings and ensuring that staff have the appropriate training.

3.2.3 Lack of capacity to meet demand

Availability of ELC places and providers offering services to 1- and 2-year-olds

One concern frequently raised by stakeholders was that there would not be enough capacity within settings to accommodate all 1- and 2-year-olds who could be entitled to a place when the new offer is implemented. Ensuring that there are enough providers, staff, and places available for the younger age group will therefore be a vital consideration for the development of the offer. One important aspect of this is promoting all types of providers and making sure that each of them is supported by their LA. For instance, it was mentioned by some interviewees that childminders often do not receive the same support as providers in LA settings (e.g., they may not be invited to child protection and multiagency meetings for children with ASN or have training options available at times suitable to their working hours), and it can be particularly difficult to ensure the presence of childminders in all areas within each LA and thus meet demand wherever it occurs.

A further aspect of the limited availability of ELC provision for 1- and 2-year-olds is related to the rural nature of some areas. There are some areas where the population is not large enough for there to be ELC provision, while long travel distances and a lack of suitable transport links can make it difficult for families to access provision that is further away. A consequence of this is that parents may not be able to access ELC for their 1- and 2-year-olds, and, if they can, they may not have much choice in the type of provision they can access. Finally, because much of the existing capacity has been utilised to deliver services for 3- to 5-year-olds, stakeholders anticipated a lack of capacity to meet demand for 1- and 2-year-olds.

Concerns related to workforce

A related concern described was that there is not sufficient capacity in the workforce to deliver the new offer effectively. It was mentioned that it is difficult for providers to recruit and retain staff. This was described as particularly difficult for providers within the private, voluntary or independent (PVI) sector, where staff often choose to move to LA settings that may pay higher wages and provide better employment benefits (e.g., annual leave). It was also mentioned that current staff may not have the skillset required to care for 1- and 2-year-olds, which is in part because childcare qualifications have primarily focused on the care of 3- to- 5-year-olds. As such, in addition to ensuring that all types of providers are supported, significant funding to grow and upskill the workforce will be required to deliver the new offer effectively.

A concern related to the discussion above, expressed by stakeholders, was that there are many staff members that do not have experience caring for this younger age group and may therefore not be able to implement best practice. Experienced staff members are also valuable because they can mentor and share their knowledge with newly qualified colleagues. As such, the new funded offer should focus on training staff to supply providers with the tools that they need to support 1- and 2-year-olds.

A further important challenge expressed by stakeholders was that insufficient funding and resources, particularly for PVI providers, can negatively impact the quality of ELC they can provide. For instance, the importance of the sustainable rate being in line with the Real Living Wage was discussed. Overall, it was suggested that the new offer needs to be underpinned by adequate funding to ensure that providers can deliver high quality ELC provision. Furthermore, considering that some LAs rely primarily on the PVI sector to deliver ELC services for 1- and 2-year-olds, the importance of ensuring that allproviders are supported and sufficiently resourced within the new offer was emphasised.

3.2.4 Further considerations for a new offer

When discussing considerations for the new offer, stakeholders suggested that the messaging and communication about the offer will be highly important. This is particularly significant if the new offer will come with eligiblity criteria as families need to understand whether their child is entitled to ELC or not. One provider explained that, under the current offer, they had not had as much uptake for their eligible 2-year-old places as they would have expected. The provider suggested that this might be because the criteria are not described clearly enough and are only provided online.

3.2.5 Additional challenges and suggestions from providers (survey of providers)

In a survey of ELC providersfor 1- and 2-year-olds, respondents were asked to identify the main challenges and key suggestions for implementing a new offer, among lists of pre-defined options.

The lack of suitable infrastructure or spaces was among the most common challenges selected by providers in all LAs surveyed.^[15] Additionally, meeting CI registration criteria, managing family expectations and insufficient funding from the LA to cover the cost of providing services were also frequently selected by providers.

In terms of views on what the new ELC offer should include, tailored support for children with ASN was among the suggestions most commonly selected by providers in all LAs surveyed. Additionally, parenting support programmes, parental engagement and family learning programmes and cognitive and emotional development support programmes were frequently selected answers in three out of four LAs surveyed.^[16] In addition to the pre-defined options respondents could choose from, some stakeholders suggested that 1- and 2-year-olds should have fewer hours and shorter days in ELC settings.

3.3 Scottish Borders

3.3.1 ELC provision in Scottish Borders

According to CI data, in Scottish Borders, there are 0.18 places in formal group-based ELC settings per child for 1-year-olds, 0.43 places per child for 2-year-olds, as compared to 0.76 places per child for 3-year-olds, and 1 place per child for 4-year-olds^[17]. The majority of provision is within nurseries, with 10 nurseries out of 69 offering places to 1-year olds, and 38 offering places to 2-year-olds. There is one playgroup in the council offering places to 2-year-olds, and there are no children and family centres registered with the CI in Scottish Borders. Information on the number of providers and places for 1- and 2-year-olds in each LA in Scotland is presented in Appendix 3 and similar information specific to case studies is presented in Appendix 4.

3.3.2 Demand and capacity challenges in Scottish Borders

Stakeholders described that the demand for ELC for 1- and 2-year-olds within Scottish Borders is high and while the statutory duty for eligible 2-year-olds can be met, there is not much capacity beyond this. For instance, one provider engaged with stated that their baby room consistently has a year-long waiting list. The Early Years centres run at almost full capacity year-round, while there are several areas with few or no childminders. According to stakeholders, this may partly be due to the rurality of the LA.

3.3.3 Early Years centres – An example of a holistic approach

The ELC provision available in Scottish Borders for 1- and 2-year-olds is only provided by the PVI sector. In addition to this, Scottish Borders has a supported childminding scheme and four Early Years centres located in the areas with the highest deprivation. The Early Years centres are attached to schools and funded by the LA. The centres do not provide childcare but work with children together with their parents, as well as with parents on their own. Families and/or parents can access services like Stay and Play and Bookbug and the centres also deliver programmes like Pscyhology of Parenting Project (PoPP), Mellow Parenting, and Incredible Years. There are also sessions that encourage important aspects of childcare such as healthy eating and budgeting as well as drop-in sessions held by other professionals.

Once a year, parents are consulted by the Early Years Centres on the types of services they believe they would benefit from, and the centres try to tailor what is made available to meet these preferences. Overall, the Early Years centres aim to build confidence and capability in parents, which in turn can enhance their parenting skills. The stakeholders engaged with emphasised the importance of providing holistic support to families and that a new ELC offer should promote family life. The Early Years centres available in Scottish Borders illustrate how 1- and 2-year-olds and their families can be holistically supported, and could be a key component of ELC for the younger age group going forward.

3.4 Moray

3.4.1 ELC provision Moray

According to CI data, in Moray, there are 0.15 ELC places in formal group-based ELC settings per 1-year-old and 0.62 ELC places per 2-year-old, compared to 0.83 ELC places per 3-year-old, and 0.97 ELC places per 4-year-old.^[18] Overall, 29 nurseries out of 60 in Moray have places for 1- or 2-year-olds. Three playgroups also have places for 2-year-olds. There are no registered creches or children and family centres in Moray that have places for 1- and 2-year-olds. Information on the number of providers and places for 1- and 2-year-olds in each LA in Scotland is presented in Appendix 3 and similar information specific to case studies is presented in Appendix 4.

3.4.2 Gaps in provision and reliance on the PVI sector

ELC for 1- and 2-year-olds in Moray is primarily delivered by PVI providers while funded places for eligible 2-year-olds are provided by partner organisations. Across all age groups, there are significantly more PVI providers than LA services. Before the expansion of the offer to 1140 hours, there were settings providing services exclusively to 2-year-olds (e.g., playgroups), but the number of these has since decreased. It is now more common for ELC provision for 2-year-olds to be integrated within other settings. Generally, there is a higher demand than supply for ELC services for 1- and 2-year-olds. Demand for services in Moray is being tracked through birth rates, but this method does not take into consideration movement across areas. This can be a barrier because Moray has army and RAF bases, and thus many families move to and away from the area frequently.

3.4.3 Good practice examples in supporting children with ASN

A few examples of good practice were shared by stakeholders when discussing supporting 1- and 2-year-olds with ASN. In Moray there are three developmental nurseries, one of which can be accessed by children under 2-years-old. Developmental nurseries are nursery settings that are specially equipped to provide care for children with complex ASN. In the developmental nursery providing services to under 2-year-olds, children receive one-to-one support, which means that they each have one adult that acts as their key worker. This was described as working particularly well. Another example of good practice mentioned by a stakeholder was that a nursery has been able to adjust their adult-to-child ratios and have fewer children per adult to account for having a higher percentage of children with ASN than previously. This illustrates the importance of having sufficient funding and support for providers, which will enable them to deliver high quality and flexible ELC for children with ASN. A final consideration emphasised by stakeholders was the key role of other teams around the child (e.g., health, speech and language), the need for these to be well-resourced, and the importance of collaboration between these teams and ELC providers.

3.5 Glasgow City

3.5.1 ELC provision in Glasgow

According to CI data, in Glasgow City, there are 0.31 places in formal group-based ELC settings per child for 1-year-olds and 0.56 places per child for 2-year-olds, as compared to 0.88 places per child for 3-year-olds, and 0.92 places per child for 4-year-olds.^[19] In terms of provision across different types for 1- and 2-year-olds, the majority of provision is within nurseries, with 161 nurseries registered (out of a total 226) with the CI having places for 1- and 2-year-olds and 17 children and family centres also providing places for 1- or 2-year-olds. There is no playgroup or creche provision for this age group in Glasgow City. Information on the number of providers and places for 1- and 2-year-olds in each LA in Scotland is presented in Appendix 3 and similar information specific to case studies is presented in Appendix 4.

According to stakeholders, the demand for ELC places for 1- and 2-year-olds in Glasgow is high. The PVI sector accounts for the majority of provision for 1- and 2-year-olds while the LA delivers most provision for the older age group. For the age group of interest, the uptake for childminders is low.

3.5.2 Additional delivery models and family support programmes

In addition to traditional ELC provision, stakeholders from Glasgow described additional programmes and interventions designed to support 1- and 2-year-olds and their families. This includes a community childminding scheme, which is designed to provide short-term respite for vulnerable children and families. Families with children under the age of 5 can access this service through referral from family support teams. There is also a targeted project (Young Parent Support Base) for young people that become parents when they are teenagers, which is a nursery for under 3s based in a school, allowing parents to continue their education. The aim of this project is to maintain the connection between the young parent and their education, which is important for ensuring the best outcomes for them and their child. Stakeholders also underlined the value of family support programmes, however many of these have disappeared due to a lack of funding. One example that is still available is a "Toy Library" where parents can borrow a wide range of toys for their children. Overall, these additional services illustrate both the diversity of needs that 1- and 2-year-olds and their families have, as well as the value of delivering provision that is tailored to support those most vulnerable.

Stakeholders also mentioned that Glasgow has "Leaders of Learning" which involves having an additional staff member in nurseries who is dedicated to observing the children's learning and development. The nursery is then able to provide additional support to the children that need it and ensure that they are ready to start school. While this is currently only available for 3-year-olds or older children, a similar approach may be beneficial for supporting 1- and 2-year-olds.

3.6 Fife

3.6.1 ELC provision in Fife

According to CI data, in Fife, there are 0.18 places in formal group-based settings per 1-year-old, 0.43 places per 2-year-old, 0.79 places per 3-year-old, and 0.96 places per 4-year-old.^[20]75 nurseries out of 151 in total have places for 1- and 2-year-olds. All four of the children and family centres in the council have places for 1- and 2-year-olds, while eight of the playgroups have places for 2-year-olds (one of these has places for 1-year-olds). There are no registered creches in Fife. Information on the number of providers and places for 1- and 2-year-olds in each LA in Scotland is presented in Appendix 3 and similar information specific to case studies is presented in Appendix 4.

3.6.2 Limited capacity of places for younger children in certain areas and reliance on the PVI sector

According to stakeholders, while Fife provides LA-run ELC for 2-year-olds, the provision for younger children is solely provided by the PVI sector. This means that they, like Moray, rely on the PVI sector to provide these services. Of the PVI settings that do provide services to the younger age group, there are more ELC places available to 2-year-olds compared to 1-year-olds. The provision for 1-year-olds tends to be in areas with lower deprivation^[21], which means that it can be more difficult to access ELC in less affluent areas. In addition to this, stakeholders mentioned that some PVI providers are reluctant to work in partnership with the LA and offer funded places. Taken together, this means that the new offer should ensure that ELC can be accessed by both 1- and 2-year-olds in all areas independent of socioeconomic characteristics. This may involve ensuring that offering funded places is attractive for PVI providers.

3.6.3 An example of a holistic approach to ELC for young children

LA funded 2-year-old provision was established in Fife prior to the two most recent statutory expansions of ELC and has been available to 2-year-olds and their families that meet certain criteria (e.g., children with ASN may be eligible). The funded place is combined with parental support to help the child's family address anything that may impact their ability to care for their children. This support could include parenting classes or help from voluntary organisations like Home Start and Gingerbread. This is an example of taking a more holistic approach to ELC provision, particularly for those children and families that are more vulnerable. It was mentioned, however, that the more children that become eligible for funded ELC, the more this impacts the LA's ability to provide these discretionary funded places.