Early Learning and Childcare (ELC) – parents' views and use: research findings 2025

1 Introduction

This report outlines findings from early learning and childcare (ELC) research with parents. This research is part of a wider evaluation of the expansion of funded ELC in Scotland. The Evaluation Strategy, published by the Scottish Government in October 2022, set out plans to evaluate the impact of the expansion of funded ELC from 600 to 1140 hours (referred to as “the expansion of funded ELC”) on outcomes for children, parents and carers^[1], and families.

1.1 The ELC Expansion Programme

Underpinned by the principles of quality, flexibility, accessibility and affordability, the expansion of government funded ELC has been an important strand of Scottish and local Government policy and investment in relation to improving children’s outcomes and reducing child poverty over the last decade. From August 2021 the entitlement to funded ELC in Scotland increased from 600 to 1140 hours per year for all three- and four-year-olds, and eligible two-year-olds. Currently, two-year-olds are eligible for funded ELC if they, or their parent, are care-experienced or they have a parent who is in receipt of one or more qualifying benefits. Local authorities (LA) are also able to provide discretionary access to funded ELC for any other child^[2]. Since August 2021, families have been able to access up to 30 hours of funded ELC per week per child in term time, or around 22 hours per week spread across the calendar year.

In October 2022, the Strategic Childcare Plan for 2022-2026 was published. The plan set out the Scottish Government’s vision for ELC and school age childcare, including planned actions to realise the benefits of the expansion to 1140 hours of funded ELC. Three outcomes for children and families were outlined in the plan: 1) Children’s development improves and the poverty-related outcomes gap narrows; 2) Family wellbeing improves; and 3) Parents’ opportunities to take up or sustain work, study or training increase.

Key to achieving these outcomes is maximising the take-up of the expanded funded hours. Overall take-up is high among three- and four-year-olds, with LA data estimating that 95% of those eligible were registered for funded ELC in 2024. However, take-up is lower among eligible two-year-olds, with only 59% estimated to be using their entitlement in 2024. The Scottish Government’s Strategic Childcare Plan prioritises maximising uptake of ELC among two-year-olds to help realise the benefits of 1140 hours of funded ELC for children and families. Understanding what, if any, barriers exist for parents and carers in taking up funded ELC is important in order to ensure access is extended to those who can benefit most from it.

1.2 Evaluating the expansion of funded ELC hours

The Strategic Childcare Plan highlights the importance of evaluating the impact of the expansion of funded ELC to 1140 hours on children, parents and families. The evaluation is using data from a range of sources to do this. For example, the Scottish Study of Early Learning and Childcare (SSELC) aims to assess the impact of expanded hours on the high-level outcomes, collecting quantitative data on children aged two- to five-years, including those at particular risk of disadvantage, and their parents. In addition, survey and qualitative research exploring parents’ views and use of ELC was undertaken in 2017 and 2022 which captures the experiences of parents before and after the expansion of funded ELC to 1140 hours.

The evaluation of the expansion of funded ELC also seeks to assess progress against ‘intermediate outcomes’ regarding the provision of high quality, flexible, accessible and affordable ELC for all parents. Whether ELC is accessible, flexible and affordable will influence take-up, while high quality provision is crucial for achieving outcomes for children. Data from the 2017 and 2022 parent surveys show that parents’ overall experience of funded ELC was positive but there remained areas for improvement. For example, in 2022 perceived accessibility and flexibility was high – most parents were aware of their entitlement and able to access it in the way they wanted. However, parents of children with additional support needs (ASN) were more likely to experience access issues, albeit in lower proportions than in 2017. Nine percent of parents of children with ASN were dissatisfied with how funded ELC met their child’s needs and 31% had experienced difficulties accessing suitable provision. Parental satisfaction with ELC provision was also high – 97% of parents were satisfied with the quality of their main provider. However, 62% of those who paid for childcare experienced difficulties affording ELC, again more common among parents of children with ASN.

Since the previous research with parents in 2022, there continued to be significant changes and challenges across society, some of which may be expected to have affected parents’ use, views and experiences of ELC. For example, post-pandemic work patterns have changed for many parents and while flexible, hybrid working arrangements remain common, concern around productivity has meant organisations have increasingly looked to have their workforces return to the office – potentially requiring more flexible childcare arrangements. At the same time, the Employment Relations (Flexible Working) Act, which came into force on 6 April 2025, now means employees have the statutory right to make a flexible working request from their first day of employment. Furthermore, global recovery from the COVID-19 pandemic and the conflict in Ukraine led to a significant rise in the cost of living. Food and energy prices rose markedly. While inflation rates have now slowed, many families continue to feel significant financial pressures which may affect how they perceive the affordability of childcare. For these reasons, an update to the previous research is particularly timely.