Early years: speech, language and communication action plan

Our Approach: Three Pillars of Action

The Action Plan is founded on three interconnected pillars that are critical to creating lasting, system-wide change in how Scotland supports children’s early SLC development. These pillars have been based on insights from across the system as to where changes are needed to support a more holistic, preventative approach and directly contribute to the drivers set out in our Early Child Development change theory. Each pillar addresses a distinct but interconnected area and together they form a comprehensive framework to improve outcomes for all children, especially those facing disadvantage.

These pillars are:

1. Leadership and Accountability

Strong leadership and clear accountability structures across the system are essential to embed early SLC as a national priority. This means ensuring that all levels of government and public services, from national to local, take responsibility for delivering measurable improvements. Transparent governance, supported by robust data and evidence, will guide informed decision making and ensure resources are directed towards prevention and where they are most needed. Without visible leadership and coordinated multi-agency oversight there is a risk that efforts become fragmented and less effective.

2. Families and Communities

This pillar focuses on empowering families and communities with the knowledge, confidence and resources they need to support babies’ and children’s SLC from pregnancy onwards. By building language-rich environments and strengthening everyday responsive interactions between babies and children, and their caregivers, we can reduce the number of children who develop SLC concerns. Empowering families means delivering culturally relevant, accessible support tailored to the diverse needs of Scotland’s communities.

3. Skilled and Supported Workforce

The quality of care and support that children receive is fundamentally shaped by the expertise, confidence and commitment of professionals across the health, education and social care sectors. This pillar focuses on developing a highly skilled, knowledgeable and well-supported workforce who, through engagement with SLT services, are equipped: to create and maintain inclusive language and communication supportive environments for every baby and child, to recognise key factors associated with better or poorer SLC outcomes and to deliver impactful evidence-informed early interventions.

Why These Pillars

The pillars of this plan emerged directly from the evidence and engagement work undertaken with stakeholders, practitioners and families. They reflect the areas where change is most needed if we are to improve outcomes in early communication, and link closely with the wider ECD programme mapped in Annex B.

From Pillars to Action

The pillars highlight the areas where change is needed. The Scottish Government’s role is to act as an enabler, creating the national conditions, resources and leadership that make those changes possible, setting out a series of concrete Scottish Government actions aligned to each pillar. These actions are not about prescribing local practice; they are about ensuring the policy, investment and system levers at the national level are aligned in the right direction, and support the work already happening in communities and services.

These interconnected pillars cannot be considered in isolation, and progress is needed on all three. For example, leadership that prioritises early SLC development drives investment forward in workforce development and ensures that prevention-focused programmes reach families effectively. Likewise, an empowered workforce can provide data and feedback that inform leadership decisions and strengthen accountability. Families supported by skilled practitioners, at the earliest stage, are able to provide a nurturing home learning environment that supports early SLC development.

By adopting this three-pillar framework, the Scottish Government commits to a holistic, sustainable approach that recognises the complexity of early communication development and the need for coordinated, multi-sectoral action, supported by the values and principles of GIRFEC and the Quality Improvement journey.

Infographic text below:

A whole system commitment to nurture language and communication from the start

Leadership

Families and communities

Workforce

Building on strong foundations

Pillar 1: Leadership and Accountability

Systemic and lasting change starts with the Scottish Government providing clear and visible leadership to ensure early SLC development is recognised as a national priority from pre-birth onwards. This involves setting firm expectations, embedding SLC within key policies, using robust data to guide decisions, and holding all partners accountable for delivering measurable improvements.

The Scottish Government will:

• Promote the inclusion of early SLC within Children’s Services Planning.

How: We will work to ensure that early SLC outcomes, including priorities from the pre-birth to 3 period, are clearly reflected in Children’s Services Plans and articulate the opportunity for preventative approaches. This will include setting expectations within national guidance and support materials for Children’s Services Planning Leads. Engaging local SLT services in planning processes, in line with the GIRFEC approach, will help drive consistent, joined-up action across the system to support children’s communication development from the earliest stage.

• Improving the accessibility and use of existing data sets on early SLC development.

How: We will work with PHS and Local Government to promote access to, and use of, existing local level data sets that capture early SLC development disaggregated by deprivation and other key inequalities. This will include ensuring local planners and practitioners are aware of which data sets are available, how to access their local data and how to interpret the data to support local decision making. Reliable, detailed data will enable evidence-based planning, help target support to communities with the greatest need and track progress in closing the gap between children in the most and least disadvantaged areas.

• Appoint a dedicated National Early SLC Lead to coordinate delivery and monitor progress.

How: We will designate a National Early SLC Lead to drive the national agenda on early SLC. This Lead will be based in NHS Education for Scotland (NES) and be supported by a small team of senior Speech and Language Therapists, building on the first phase of NELC work, based within Education Scotland. This team will act as the focal point to maintain momentum, promote best practice and support accountability across all sectors, contributing to children’s communication outcomes. The National SLC Stakeholder Reference Group will play a critical role in supporting delivery.

• Assign joint responsibility to three Ministers with specific portfolios related to early SLC.

How: Responsibility for driving the delivery of the Action Plan will be jointly held by the Minister for Children, Young People and The Promise; the Minister for Public Health and Women’s Health; and the Minister for Social Care and Mental Wellbeing. This shared ministerial leadership will ensure clear accountability at the highest levels of government, promote collaborative working across relevant sectors and provide coherent oversight of early years, health and family support systems.

Through these actions, the Scottish Government will set the strategic direction, ensure transparency and strengthen accountability, while collaborating closely with local authorities, NHS Boards and the third sector to deliver improvements on the ground.

Case Study

Leadership and Accountability practice example - Eddie Fraser, Chief Executive, East Ayrshire Council

"At the newly developed Executive Leadership Group for Infants, Children and Young People discussions began with a focus on collaborative strategies to support the speech, language and communication development of all infants and children.

To reduce overall concerns and to narrow the poverty related gap, leaders all agreed it was key that we recognise early speech, language and communication development as a critical foundation for better long-term outcomes for children.

As a leadership team, we were aware of the national work and projects beginning to identify how localities and services can develop and support a whole systems approach to early language and communication.

At a time of significant financial challenge in the public sector, we protected a fund for prevention and early intervention to provide investment in areas that show potential to deliver real sustainable improvement in the lives of our communities. This has been made possible and received higher profile due to the sponsorship of our Chief Executive, Senior Leaders and Elected Members.

As a Council we understand that some of the impact can be over many years and look forward to seeing the impact from the investment."

Pillar 2: Families and Communities

The Scottish Government recognises that early SLC development begins before birth and is strongly influenced by families and communities. We are committed to empowering families, particularly those who are most vulnerable, by strengthening and aligning existing universal and targeted services to provide consistent, timely, relational and trusted support, that is relevant to the diverse needs of Scotland’s communities. These actions are underpinned by the GIRFEC approach, with the National Practice Model providing a shared language and a framework for practitioners. The actions are also firmly grounded in the principles of UNCRC, recognising the rights of babies and young children to have their voices heard and respected, and giving parents the support they need.

The Scottish Government will:

• Strengthen face to face, relational early SLC support to families from pre-birth.

How: We will use established national and local networks to promote shared responsibility across the system and consistent use of resources, such as the Chatting Together key messages, to reinforce the opportunity for prevention and early intervention. This will be achieved by updating guidance, embedding messages in current training and sharing best practice across early years services. Our role will focus on providing coordination and strategic leadership within existing governance structures, to support consistent and clear communication with families from pre-birth onwards, ensuring that professionals across services deliver aligned, supportive messages to parents and carers at every stage.

• Build on collaborative family support offers, with integrated SLC content, that respond to family need.

How: We will set clear expectations for joint planning, delivery and shared accountability across key services, including health, education, third sector, social services and SLT. This will include the improved use of shared data, local intelligence and evidence to identify children at risk earlier and enable targeted, preventative support.

Local partnerships will be expected to empower professionals, families and communities to work together from the earliest point, jointly identifying need, designing interventions and delivering non-stigmatising support underpinned by family engagement. Progress will be monitored through existing children’s services planning frameworks, with a strengthened focus on how services are working together to meet the needs of children and families.

• Strengthen national communication to promote early SLC

How: We will enhance the reach and impact of early SLC messages, such as ‘Chatting Together’, through established national channels. This includes building on the information already available from Parent Club and strengthening the existing health and wellbeing advice in the Baby Box, through the inclusion of accessible, engaging SLC information for parents and carers, by March 2026. Our approach will be informed by data on how and where families access support and guidance.

Through these actions, the Scottish Government will take a public health approach and provide strategic leadership and coordination to ensure families are empowered and supported within existing frameworks, maximising the impact of current resources to improve children’s early SLC outcomes.

Case Study

Families and communities practice example – ‘Hello in there wee one’ (Dundee)

'Hello in there wee one' was developed by a collaborative group including NHS Tayside, Dundee Contemporary Arts, the University of Dundee, Dundee City Council and a Visual Artist, led by NHS Infant Mental Health team.

To support ante-natal bonding, we wanted to encourage expectant parents to communicate with their baby. We worked with local families and health professionals using participative arts approaches, to design the content and the artworks. The ‘Hello in there wee one’ book and online resource supports expectant parents to imagine their growing baby, and to talk, read and sing to them. The book is given to every expectant parent in Dundee at their 16-week midwifery appointment as part of their routine care and is available in a video and Dundonian Scots edition which enhances inclusivity and accessibility.

Small changes at the earliest stage, as relationships are developing, are shown to be most cost effective. Parents feel more confident to start communicating and know how to begin. This will ultimately support infants’ voices to be better heard and understood, their needs better recognised and their rights fulfilled, right from the start. This illustrates how working closely with families and local communities through a strengths-based, culturally relevant approach effectively supports children’s early communication development.

Pillar 3: Skilled and Supported Workforce

The Scottish Government recognises that a confident and knowledgeable workforce is essential to supporting children’s early SLC development with a focus on prevention and early intervention. We will ensure that professionals working in early years, health and family support sectors are equipped with the practical skills and confidence to deliver meaningful change. This includes aligning initial qualifications with national expectations, strengthening workforce development infrastructure and embedding supportive approaches, such as coaching and modelling, into everyday practice.

We recognise that training alone is not enough to achieve sustainable improvements. That’s why we will build on improvement capacity and resources in the system to help people put learning into practice and implement the changes that are needed. Initial training and ongoing professional learning needs must be addressed to support the workforce in delivering the ambitions of the Action Plan and sustaining improvements in practice, including through the promotion and adoption of Quality Improvement as an approach to change.

The Scottish Government will prioritise three key actions:

• Align Existing Qualifications and Training with SLC Priorities

How: We will work with education providers, professional bodies and regulators to ensure that initial qualifications for ELC practitioners, midwives, health visitors and Family Nurse Partnership staff embed early SLC knowledge and skills. For ELC practitioners, this will include contributions to the Scottish Vocational Qualifications (SVQs) and Modern Apprenticeships review. For health visitors, we will continue collaboration with NES and the Specialised Community Public Health Nurse course providers, to embed early SLC development into training. We will work proactively to overcome current barriers within the qualification review systems and drive forward urgent changes, ensuring new practitioners are equipped from day one to meet children’s early communication needs.

• Ensure Access to High-Quality Continuous Professional Learning for Early SLC

How: We will work with NES, the Scottish Social Services Council (SSSC), Education Scotland and others to provide high-quality learning opportunities and resources with a focus on preventative and early SLC development approaches. This includes expanding access to coaching, modelling and in-practice support. NES’s existing resources will be central to this and will be further enhanced through the implementation of the SLC Knowledge and Skills Matrix for the early years workforce. We will prioritise its wider implementation and uptake, especially in early years settings. We will also strengthen workforce development infrastructure to ensure that continuous professional learning (CPL) is matched by practical support mechanisms including modelling, peer support, mentoring, coaching and self-reflection. This approach will enable practitioners to develop skills in real-world settings and to build their confidence through practice.

• Promote the Role of Language and Communication Supportive Environments in High-Quality ELC

How: We will engage with Education Scotland to encourage and support ELC practitioners to embed language and communication supportive environments through promotion of a National Language and Communication Supportive Environments resource. This resource focuses on core aspects of language and communication supportive environments and how this can be implemented, with consideration of practitioner skills, knowledge and confidence in practice.

In addition, we will work collaboratively with the Care Inspectorate and His Majesty’s Inspectorate of Education (HMIE) to explore how aspects of language and communication supportive environments, across interactions, experiences and spaces, can be evidenced in reporting aligned with the Quality Improvement Framework for Early Learning and Childcare Sectors. Our approach to quality assurance will be supportive rather than punitive, recognising current workforce gaps and focusing on capacity building over performance.

Furthermore, the Children and Young People Improvement Collaborative (CYPIC), alongside the NELC team, will work with a local area using Quality Improvement methods to learn what it takes to implement the Chatting Together principles in ELC settings, with the ambition to use this learning to spread an implementation approach more widely across Scotland.

Case Study

Perth and Kinross – Engagement with Private, Voluntary and Independent (PVI) early learning and childcare providers

The Perth and Kinross Early Years Team identified the need to ensure that practitioners are developing their skills, knowledge and confidence to ensure that children in ELC experience language-rich environments that improve their talking and listening skills. They have developed a range of tailored professional learning opportunities across the broader early years’ workforce.

Induction training takes place for all new ELC practitioners employed by Perth and Kinross Council (PKC). All materials are added to their Padlets ELC Communication and Language Early Learning and Childcare Induction which was in part, co-created with NHS Tayside SLT colleagues.

They have delivered bespoke training where needed to meet the individual needs of partners, such as when there were significant changes in the early years team. Bespoke Childminder training is planned across the year and features a focus on speech, language, and communication to support the work they do with children and their families.

By the nature of the ethos in PKC, and to ensure equity, they include all our settings across Local Authority, Partner Providers and Private Voluntary and Independent (PVI) in their learning offers.

Due to the close partnerships PKC has with their Childminder, ELC and PVI settings, they feel they can meet the needs of all individual settings using their inclusive and flexible resources. For example, they offer training at different times of the day and offer recorded options.

The PVI workforce and Childminders in PKC feel included and involved in all the work they do to support communication and language, and they seek their feedback on ways to improve their service and offer of support.