Free Childcare

Geraint Davies Excerpts

Monday 9th March 2020 Westminster Hall

[Geraint Davies (in the Chair)]

Before I call Catherine McKinnell, I simply say that Jessica Taylor, the House of Commons photographer, is in the room and will be taking photographs. I hope people do not mind; everyone is looking very good today.

[Catherine McKinnell (Newcastle upon Tyne North) (Lab)]

I beg to move,

That this House has considered e-petition 255237 relating to the provision of free childcare.

It is a real pleasure to serve under your chairmanship, Mr Davies, and to lead the first Petitions Committee debate of this new Parliament. Campaigning on issues that are important to us is a vital democratic right, and for hundreds of years petitions have had the power to connect people with Parliament, to raise awareness of important issues and to help bring about real change for people and communities around the country. More than 23 million people have started or signed petitions on the parliamentary site since it launched in 2015, and it has been inspiring to see so many people getting involved and actively engaged with Parliament and democracy. I am proud to have been elected Chair of the Petitions Committee, and I look forward to taking it forward into the new decade, starting with today’s debate, which has attracted interest from every part of our country.

The e-petition, which is titled, “Provide 15 hours free childcare to working parents for children over 9 months”, was signed by more than 146,000 people, including more than 600 in my own city of Newcastle upon Tyne. It reads:

“After 9 months of maternity leave, most working mums do not receive any maternity pay and need to go back to work. I think all working parents should be entitled to 15 hours free childcare from the time a child is 9 months. It makes more sense to provide this funding from 9 months instead of 2 years.

Many working families struggle week to week due to the cost of childcare. You are required to go back to work after a year of maternity pay however many go back after 9 months due to funds. Once you go back the majority of your wage goes to childcare and in some cases you are better off not working. This should not be the case.”

The creator of the e-petition, Harley Cuthbert, was going to be in the Gallery today to watch the debate and may well join us. I thank Harley for starting the petition. She told me that she decided to start the petition because of her own situation.

For anyone to be left feeling that they cannot afford to start a family due to the cost of childcare is truly heartbreaking. We all want to live in a society where families are able to balance work and family life and are not forced to delay having a family or become dependent on welfare benefits to meet the costs of raising a family. Harley described her situation as being in a middle group of people who earn too much to receive state support, but not enough to be able to afford the cost of childcare. The system should encourage parents to work and contribute to the economy, while also raising a family. The provision of affordable childcare is a key part of that.

Childcare is an issue that interests the British public, and no fewer than 67 petitions in the last Parliament were related to it. They included calls for extra support for parents of multiples, for free childcare to begin earlier, such as at six months or a year, for extra support for parents with disabilities, for special schemes for the families of UK armed forces personnel and for business rates relief for nursery providers.

Ahead of the debate, our Committee reached out to the public online, through Facebook and Mumsnet, to continue the conversation about how childcare issues are impacting on families. The issue affects people in every part of our country and across the income scale, from two-parent families with two good, full-time salaries, to part-time, single-parent families on minimum wage. All said that they struggle to pay for childcare so that they could return to work. I want to share just a few of the contributions to highlight how the issue is affecting working families.

One of the strongest messages from people was that they have to pay to go to work. Jo said:

“With two preschool aged kids I was earning at a loss having to pay for childcare…working and not making money is really bad for a mum’s mental health, the guilt for choosing to maintain a career and not being with your kids is one thing but to do it for no current financial gain is a real mind crusher.”

Katie, who is due to return to work in June, said:

“When me and my partner were looking at me going back full time and putting my child in nursery full time it didn’t make financial sense for me to go back to work. It’s unfair for parents to have to choose between going back to work to break even or in some cases actually paying to work (as nursery fees are above the cost of their wage) or staying at home and having no job and no income.”

A large number of respondents said that they were better off financially not working or working fewer hours than paying for full-time childcare.

Some families are paying the same amount for childcare as they do for their rent or mortgage. Claire said:

“3 days a week nursery is costing us £1000 forcing me to have to go back full time and rely on family for the other 2 days!”

Victoria said:

“The nurseries in my local area have essentially created a fixed price for childcare. Full time nursery 5 days a week is £1500 a month. That is more than my mortgage!”

We know the cost of childcare is a huge expense for families, and the childcare survey, published by Coram last month, reported that the average cost of 25 hours of childcare a week for a child under two in England is £131.61 a week, or £6,800 a year. That is a significant amount of money for families to budget for. Moreover, we know that the cost of childcare is rising above the rate of inflation. Twenty-five hours of childcare for children under two now costs 5% more than it did a year ago, and 4% more for a child aged two. Those ever-rising costs put huge pressure on family budgets and erode the incentives for parents to go out to work when they see most of their wages disappearing to cover the cost of childcare. The financial pressures have a knock-on effect on other aspects of family life.

We have heard from parents whose careers have been permanently disadvantaged. Others must rely on family members to help, particularly elderly grandparents. Some people, such as Harley, have delayed having children or having additional children because of childcare costs. Shannon said:

“I had my baby in May and I’ve had to give up working and rely solely on my fiancé’s wage. My weekly wage before was £250 and my childcare bill would be £200 so I’m out of pocket by the time I’ve filled my car to drive to work and drop my little girl off.”

Rachel said:

“Women like me who then have to stay at home to look after children risk falling behind male colleagues at work, increasing the gender pay gap. Men who don’t have caring responsibilities are able to work those extra years and so earn more overall.”

Sandra, a grandmother, said:

“My daughter returned to work recently. Her older daughter was cared for by me until just over a year ago when she was given a nursery place. I now care for her baby almost 9 months old. I’m nearing 66 with no pension. My daughter can’t afford to pay me as she is on minimum wage. I love my grandson but 4 years ago it was easier with his sister and I now struggle with caring for him. I’m exhausted by the time she gets home, a nursery place would be brilliant.”

Another point, particularly given that we have just had International Women’s Day, is the impact on gender equality and career progression for women. A report by the TUC in 2016 found that fathers who work full time get paid a fifth more than men with similar jobs who do not have children. A wage bonus of 21% contrasts with the experience of working mothers, who the report found typically suffer a 15% pay penalty. The TUC has called for more decently paid jobs to be available on a reduced-hours or flexible-work basis to reduce the penalty paid by mothers and to enable more fathers to fit working around their fathering and parenting responsibilities.

Better childcare opportunities could also enable women who have children to continue working more hours a week, reducing the impact on their career. If we are to tackle increasing rates of child poverty and a lack of social mobility, it is critical that we address the issue. In 2017-18, 4.1 million children were living in poverty—30% of all children—which is a shocking statistic. It is expected to reach 5.2 million by 2022. The two biggest costs putting pressure on family budgets are childcare and housing. When childcare costs are accounted for, an extra 130,000 children are pushed into poverty.

We also know that the attainment gap between disadvantaged and more advantaged children is already evident by the time a child reaches school at age five, with the gap between them equivalent to 4.3 months of learning. The gap more than doubles to 9.5 months at the end of primary school, and then more than doubles again to 19.3 months at the end of secondary school. Increasing the availability of good quality affordable childcare enables more parents to get into or return to work or access education or training, while also improving the educational outcomes for their children.

--- Later in debate ---

[Catherine McKinnell]

I absolutely agree with my hon. Friend. I will come on to make that very point in more detail.

The issue is not only a problem for individual families; it is critical to our whole economy and productivity levels. Early years education has proven to be a positive benefit to our children, too. The Department for Education’s study of early education and development—SEED—longitudinal study, published in 2018, found that increased hours per week spent in formal early education, such as day nursery, between the ages of two and four resulted in non-verbal development and better socio-emotional outcomes. The Education Committee’s inquiry into tackling disadvantage in early years found that early years education for children below the age of four has a positive impact on the life chances of disadvantaged children. However, it also found that disadvantaged children currently spend significantly less time in pre-school than children from more affluent backgrounds.

Britain has long had a publicly funded education system because successive Governments have recognised that such a fundamental service should be provided by the state and be available to all. Just as we accept the principle that family income should never be a factor in whether children receive a good school education, the same must be said of early education, which is equally as crucial. We often look to Scandinavia for ideas on effective family policy; countries there have long recognised the value of early education and have invested in it extensively.

Finland provides free universal daycare from eight months until the start of formal education at age seven. In Sweden, parents have a universal entitlement to a guaranteed childcare space, and the fees for using it are capped. The system is so accessible that 85% of children under five years attend pre-school. Parents are entitled to 16 months’ parental leave, with the first year paid at 80% of their salary. They also receive a monthly child allowance that can be used to significantly reduce the cost of pre-school. In Denmark, the cost of childcare to parents is capped at 30% of the actual cost for nurseries. Norwegian parents are entitled to a flat-rate child benefit allowance. The result is that Scandinavian countries consistently rank among the best internationally on all the indicators of children’s wellbeing. Rates of child poverty are also among the lowest in the world.

The provision of free part-time childcare places for all three and four-year-olds in England was introduced in the early 2000s. Tony Blair’s Labour Government recognised that the modern welfare state needed to adapt and do more to support parents to raise young families and balance home life with work. The introduction of free childcare, alongside tax credits, was part of a package to give parents—particularly mothers—more choice over returning to work and having more children. I am pleased that the principle of investing in early years support has received cross-party backing. There have been some positive developments from Governments in recent years. Working parents of three to four-year-olds now receive 30 hours of free childcare, and those of disadvantaged two-year-olds can receive 15 hours on a means-tested basis.

However, although the headline picture is of a Government that continued Labour’s investment in early years, beneath the surface services have been squeezed and vital early intervention support has been cut. Across the board, spending on Sure Start and early years services in England has decreased by 39% since 2014-15, and almost £1 billion was slashed from Sure Start spending between 2010 and 2018. Free childcare, as my hon. Friend the Member for Cambridge (Daniel Zeichner) has pointed out, has been underfunded; additional funding has not been allocated to cover the cost of minimum wage rises for nursery staff. Take-up of the two-year-old offer among children who receive free school meals varies significantly across the country, with analysis showing that in major metropolitan areas they are among the key disadvantaged groups. Access to places and differences in the types of placement on offer varies a lot, too, and can limit take-up in some areas. That is why, in 2018, the Treasury Committee conducted an inquiry, which I was pleased to be part of, into childcare policy and its influence on our economy.

I was really pleased to see the Committee—for the first time chaired by a woman—investigate the economic impact of childcare as a key aspect of our national infrastructure, in recognition of the fact that our economy is driven not only by trains, roads and IT, but by parents’ ability to go to work knowing that their children are happy and well cared for in high-quality settings. We therefore looked at the overall package of Government initiatives in this area and their effectiveness. Our cross-party review found that the Treasury had made little effort to calculate the economic impact of the Government’s childcare interventions. However, the evidence available suggested that the biggest impact of the Government’s childcare schemes may be to make childcare more affordable to those who receive support, rather than bringing parents back into the workplace.

The Committee also found that parents may need to retrain in order to return to work, but the free childcare scheme did not support that. We recommended the removal of age restrictions on childcare support for parents undertaking training or education, which would have the greatest impact on productivity. We also identified design flaws in the current schemes. The requirement in the childcare element of universal credit for parents to pay childcare costs up front before seeking reimbursement is really unhelpful to the lowest-paid parents. Moreover, the fact that the entitlement to 30 hours of free childcare only begins the term after a child turns three means that if a parent is offered a job in January, their entitlement will not begin until the summer term; that can make a critical difference to some parents’ livelihoods and decision making. If the current system of support is the starting point, the flaws need to be addressed for free childcare schemes to support people into work effectively.

Another area that has proven to be a challenge is the way in which providers are funded to deliver the schemes, and any uplift in free childcare must be accompanied by the additional funding required to make it viable. Coram’s childcare survey found that around a third of local authorities thought that the 30-hour extended entitlement had caused prices to rise for those aged three to four outside the funded entitlements. Half thought that there had been a negative impact on the financial sustainability of childcare providers. Purnima Tanuku OBE, chief executive of the National Day Nurseries Association, has said:

“High quality early education positively impacts on a child’s development and therefore their lifelong education and opportunities—it cannot be done on the cheap...By short-changing childcare providers, the Government is selling families short on their promises. Parents are seeing fees for additional hours and for under threes go up as a result.”

The Treasury Committee report estimated that the average cost per hour of providing childcare is £4.68, but the average rate that the Government passed on to providers for 2017-18 was £4.34. Some providers are left with insufficient funding to cover their costs and therefore have to cut back on the service provided, including by restricting times, reducing child-to-staff ratios and charging for services such as food and activities. In this situation, providers in higher-income areas can mitigate those funding shortfalls much more easily than can providers in deprived areas, who have much more to gain from these schemes. That undermines the potential for early education to reach disadvantaged children, who are in the greatest danger of falling behind.

The Education Committee’s inquiry into tackling disadvantage in the early years made similar observations. It found that rather than closing the gap, the Government’s 30-hour childcare policy was entrenching inequality by leading to financial pressures on nurseries, providing more advantaged children with more quality childcare and putting stress on the available places for disadvantaged two-year-olds. The Government must pay providers a rate that reflects the full costs; otherwise, the full benefits for those who are eligible will not be realised, particularly in our most disadvantaged communities, and the overall cost of childcare will be pushed up further.

Of course, investing in childcare costs money. Any policy proposals, however effective they would be, are shaped by the available financial resources. The cost of funded childcare places for three and four-year-olds stood at £3.3 billion in 2018-19, which is equivalent to £3,650 per eligible child. Overall, the Government now spend about £6 billion on all funded childcare, despite the limitations and restrictions in the current model. If free childcare were to be expanded to all children from nine months old, as the petition requests, there would clearly be significant cost implications. Labour’s manifesto proposals to reform childcare provision and make high-quality early years education available to all, regardless of income, would amount to a £4.5 billion investment. We know the value of investing in early education to tackle entrenched disadvantage and gender inequality, and there would be longer-term cost savings and a productivity boost from targeting this investment at the early years. Although this would involve a significant cost, politics is the language of priorities, and measures that tackle poverty, support families and boost the economy should be at the top of the list.

There is clear cross-party support for improving childcare, as evidenced by commitments in the manifestos of the three main parties at the last election. Labour pledged the extension of paid maternity leave to 12 months; the introduction of 30 hours of free pre-school childcare for all two, three and four-year-olds; and the extension of provision for one-year-olds. The Conservatives pledged a £1 billion fund to help to create more high-quality affordable childcare, including before and after school and during school holidays; and the Liberal Democrat manifesto included a commitment to offer 35 hours of free high-quality childcare to every child aged two to four, and to children aged between nine and 24 months whose parents are in work.

It remains to be seen whether the current Government have the political will to deliver the support that is needed. Childcare is an issue that affects families right across our country, and there is a widespread belief that the Government could be doing much more to support people to work while also raising a family. I thank everyone who signed the petition that led to today’s debate, and I thank all members of the public who have been in touch to share their views. I hope that by the conclusion of the debate, we will have represented their views and experiences effectively, and that the Government will reflect on this discussion and have a serious think about what support they can provide, particularly given this week’s Budget, which is very timely.

I will finish by asking two questions that I hope the Minister will pledge to consider. First, will she commit to a review of the economic and social impact of various levels of free childcare, so that its effectiveness can be independently verified? Secondly, will she commit to exploring the expansion of free childcare as requested by the petitioners, including the benefits of such a scheme and how it might practically be delivered with sufficient childcare places and funding to make it viable? Today, the Government have the opportunity to give a clear expression of their commitment to supporting families, supporting social mobility and supporting women and families in the workplace by pledging to investigate this issue. On behalf of the petitioners, I urge the Minister to do so.

[Geraint Davies (in the Chair)]

I now have the pleasure of inviting David Simmonds to make his contribution.

--- Later in debate ---

[Vicky Ford]

Let me get on to those who are sometimes on lower incomes. As I hope the hon. Lady is aware, eligible families can now get help with 85% of their childcare costs through universal credit, compared with 70% under the previous tax credit system. That is the highest ever level of support. Furthermore, we committed in our manifesto to creating a £1 billion fund to help with high-quality, affordable, wraparound childcare for the holiday, before-school and after-school periods. We have already started working on the details of that, which will be rolled out from 2021.

I understand that some working families who contribute hugely to our society face additional pressures. I am thinking in particular of people such as nursing students, who work shifts, and armed services families, many of whom move around regularly. That is why the Department of Health and Social Care has already announced that, from September this year, it will increase the parental support allowance for students of nursing, midwifery and allied health professions from £1,000 to £2,000 per year. That is on top of the additional £5,000 that all students on those courses will get access to, whether or not they have children.

The Ministry of Defence is setting up a childcare support team, the aim of which will be to work at fulfilling the manifesto commitment and ensuring free wraparound childcare for four to 11-year-old eligible children from armed services families. That team will also look at other areas of potential disadvantage that service families face when trying to access appropriate childcare, whatever the age of their children.

I am extremely grateful to the hon. Member for Newcastle upon Tyne North for raising this important issue. I listened carefully to the debate and noted all the contributions. I am honoured to be responsible for this extremely important part of the Government’s agenda to support parents and children. I am proud of the significant range of childcare support that the Government offer families, and of the improvements that have been made over the past decade. As Members will know, a spending review is due this year. I cannot make any commitments ahead of that about the shape or amount of the Government’s childcare funding, but I will ensure that the points raised today feed into the Government’s evidence base for that spending review.

[Geraint Davies (in the Chair)]

I invite Catherine McKinnell to wind up the debate. We have a little longer than normal, but I do not expect you to take the whole hour and 45 minutes.