The landscape of early learning and care (ELC) provision in Ireland continued to develop between 2020 and 2023. During this period, there were policy developments, programme expansions, and ongoing quality-based initiatives. This chapter includes analysis of the findings from early years education inspections (EYEI) in the ECCE programme in ELC settings, as well as the findings from a small number of EYEIs conducted in full day-care settings during this period.
Central to the ongoing programme of policy reforms in early childhood education over recent years is First 5: A Whole-of-Government Strategy for Babies, Young Children and their Families 2019-2028. Launched in 2018, First 5 set a transformative agenda for enhancing early years provision. This is a whole-of-government strategy to improve the lives of babies, young children and their families by providing policy coherence to the work of all who make a contribution to the lives of young children.
The milestones outlined below have significantly impacted the ELC sector by expanding access, improving quality through better funding and workforce conditions, and increasing enrolment rates. This landscape forms the backdrop to the Inspectorate’s early years education inspection (EYEI) programme which was first introduced in 2016.
| 2016 | Publication of the Child Care Act 1991 Regulations 2016 | |
| 2018 | Launch of the 'First 5' Strategy | |
| 2019 | Introduction of the National Childcare Scheme ( NCS) | |
| 2021 | Publication of Nuturing Skills: The Workforce Plan for early Learning and Care and School age Childcare | |
| 2022 | Launch of 'Together for Better' | |
| 2024 | ECCE programme reaches one million enrolments |
##Inspection types
The Inspectorate uses a range of inspection types to assess the quality of education provision in ELC settings. The inspections typically have a short notice period of up to two days. All of the inspections result in oral feedback to the early years educators, and the leader and manager of the setting, about the strengths in education provision in the setting and, as relevant, aspects of provision that need to be improved. In addition, a written inspection report containing the inspection findings from the inspection is published on gov.ie
| Inspection Type | Detail | Notice Given | Outcome | |
| Early years education inspection (EYEI) | Focuses on evaluating early learning pedagogy in a diverse range of ELC settings | Normally, a minimum of two working days in advance of the evaluation | Publication of final report | |
| Follow-through Inspections | Assess the extent to which an ELC setting has implemented recommendations from earlier inspections | Normally, a minimum of two working days in advance of the evaluation | Publication of final report | |
| Full day-care ELC (education provision for children from birth to six years of age) education inspections | Focuses on evaluating early learning pedagogy in a diverse range of ELC settings | Normally, a minimum of two working days in advance of the evaluation | Publication of final report |
The Covid-19 pandemic significantly impacted ELC settings in Ireland. Initially closed on 12 March 2020 along with schools and other educational institutions, ELC settings were among the first sectors to reopen on 29 June 2020 under strict guidelines. However, rising Covid cases led to another temporary closure in January 2021, with services remaining open only for children of essential workers and vulnerable children. A phased reopening began in March 2021, starting with the early childhood care and education (ECCE) programme participants and expanding to all children later that month. Throughout 2021 and early 2022, ELC services operated with various adaptations to comply with public health guidance. By 28 February 2022, most Covid-19 restrictions affecting ELC settings were lifted, including measures such as play-pods and social distancing. During this period, the Inspectorate followed public health guidance and maintained a programme of inspection with adaptation, where necessary, to the inspection processes, for example, conducting online meetings with managers.
Image: EY1
The period from September 2022 to December 2023 marked a return to the typical inspection programme in ELC settings following the disruptions caused by the pandemic.
In the period September 2022 to December 2023, the Inspectorate conducted a total of 765 inspections in ELC settings. This included 684 EYEIs in the ECCE programme in ELC settings and 16 EYEIs in full day-care ELC settings (which involves inspection of education provision for children aged from birth to six years). 34 of these were evaluations in Irish-medium ELC settings both within and outside the Gaeltacht ( 1 ). A total of 65 follow-through inspections were undertaken during this period.
Image: EY2
Early years education inspection (EYEI) is based on a quality framework that is informed by the principles of Aistear: The Early Childhood Curriculum Framework and Síolta, the National Quality Framework for Early Childhood Education, as well as national and international research related to early education and inspection. During EYEIs, inspectors evaluate and describe essential aspects of early years education with reference to the four quality areas of the Quality framework:
- Area 1: The quality of the context to support the children’s learning and development
- Area 2: The quality of processes to support children’s learning and development
- Area 3: The quality of children’s learning experiences and achievements
- Area 4: The quality of management and leadership for learning
Drawing on analysis of the 684 early years education inspections conducted in the ECCE programme in ELC settings between September 2022 and December 2023, findings for each area of the EYEI quality framework are set out below.
This area of the quality framework assesses the environment, atmosphere and relationships in the ELC setting, focusing on how these foster children’s sense of identity and belonging, celebrate cultural backgrounds, and promote positive interactions.
The overall findings regarding the quality of the learning context in the settings visited were positive, with 98% of settings found to be good or better. Notably, 16% of settings demonstrated excellent practice in this area, while only 2% were assessed as having practice that was less than good.
Image: EY3
This area looks at the approaches used by early years educators to deliver meaningful and enriching learning experiences. It covers aspects from curriculum planning and relationship building to observing, assessing, and guiding children’s learning.
The overall findings for this area were also positive. The majority of settings were found to have either good (47%) or very good (42%) processes in place to support children’s learning and development. Excellent practice in this regard was noted in almost 5% of settings. The quality of the processes in place to support children’s learning and development was found to be just fair in a small percentage (5%) of settings.
Image: EY 4
This area of the quality framework focuses on children’s experiences within the ELC setting. It takes account of the extent to which children have agency and choice in their learning, and their active participation in learning. Inspectors evaluated how children’s enjoyment, engagement and wellbeing were supported and how each setting recognised each child’s potential.
The overall quality of the children’s learning experiences and achievements was found to be positive in 98% of settings. Of those settings, the quality in this area was found to be excellent in almost 13% of settings, very good in 54% of settings and good in 31% of settings. Less than 2% of settings were found to have less than satisfactory practice in this area.
Image: EY5
In this area, inspectors evaluate how leadership and management support daily activities and foster continuous improvement, including support for transitions in children’s learning journeys both within the setting and as they move on to primary school.
The findings in relation to the quality of management and leadership for learning were positive for most settings (94%). Management and leadership were found to be of an excellent standard in 15% of settings, very good in 49% of settings and good in 30% of settings. Inspectors found that this quality area was just fair in less than 6% of settings.
Image: EY6
The purpose of a follow-through inspection is to evaluate the progress an ELC setting has made in implementing the recommendations or actions advised from an earlier inspection. This is facilitated through a consultative, professional engagement between the inspector and relevant setting management, leaders, educators and staff as well as first-hand observation of education provision in the setting. Inspectors also advise the setting on strategies and actions to enable them to fully address the actions advised in the previous inspection.
Overall, there was evidence of positive progress by settings in addressing the recommended actions arising from previous inspections. Common areas identified by inspectors for follow-up included curriculum and planning, transitions to primary school, daily routines and the development of learning environments. Follow-through inspections showed that the recommendations or actions advised in relation to management and leadership were not being addressed as effectively as recommendations in the other three quality areas.
The educational evaluation of the early years sector is evolving further with the recent introduction of education inspections in settings providing for children aged from birth to six years. This new approach, which began in September 2023, is significant in the context of the cross-departmental commitment to high-quality early learning and care provision. This initial phase of inspections, covering sixteen full day-care ELC settings, has yielded promising insights, with most settings achieving a 'good' rating, demonstrating a solid foundation in early years education.
ELC settings that demonstrated highly effective practice had emergent and enquiry-based curricula, skilled interactions with children and strong leadership. These settings excelled in fostering the children’s holistic development, in promoting their social skills, and in supporting positive learning dispositions.
However, the inspections, while few, also revealed areas for improvement, particularly in environments for children under three. Enhancing outdoor learning spaces, refining assessment practices and adapting pedagogical strategies for younger children emerged as key focus areas.
It is important to note that this initial phase represents just the beginning of a more comprehensive evaluation process. As the sample size expands in future years, a more nuanced and broader analysis of this provision will emerge. This broader scope will provide greater opportunities for reflection, learning and targeted development across different age cohorts within ELC settings.
The Inspectorate acknowledges that these early findings should not be generalised to the entire population of full day-care ELC settings. However, they provide insights to inform future inspections and quality improvement initiatives.
As the numeric data presented earlier in this chapter indicates, findings across the four areas of the early years quality framework were generally positive. This section presents insights from a sample (10%, n=70) of early years education inspections conducted between September 2022 and December 2023. An analysis of the findings from these inspections gives some insights into important aspects of early years education provision including: the fostering of belonging and partnerships in the settings; the role of environment, curriculum, and inclusive practice; nurturing engagement and creativity in the settings; and leadership and transitions.
In many ELC settings, warm and inclusive environments were evident, where children formed secure attachments with key adults. Parents, guardians and family members were actively welcomed into the setting, fostering strong partnerships and allowing them to engage with educators and children in the learning environment. Daily routines and transitions were smooth and predictable, providing children with a sense of stability. Educators used various strategies, such as visual timetables and audio-visual cues, to support children’s independence and help them navigate changes throughout the day. Such practices supported the children’s sense of belonging and strengthened the connection between the home and the learning setting.
Where effective practice was evident, ELC settings also encouraged the children to develop their independence. Children in such settings were active in self-management tasks. Snack and mealtimes were organised as social occasions with educators participating to model conversation and social behaviour.
While there was much positive practice in the ELC settings in relation to the quality standards in Area 1 of the quality framework, the analysis of the inspection findings across the sample pointed to a recurring theme in the recommendations or actions advised, namely, the need for greater investment in the development of cultural and community connections to support children’s sense of identity and belonging.
Another area regularly identified as in need of improvement was that of partnership with parents. An unfortunate consequence of the COVID emergency period was the exclusion of parents from ELC settings. While many settings have reversed this policy, there is evidence that the pre-pandemic tradition of close involvement of parents in the operation of ELC settings has yet to be re-established fully in some settings.
The learning environment is often described as the ‘third teacher' ( 2 ) highlighting the significant impact that the organisation, resources, and materials provided to children can have on stimulating, engaging, and enriching their learning.
In settings where highly effective practice was observed during inspections, learning environments were thoughtfully designed to prioritise children’s engagement and developmental needs. These environments featured well-defined interest areas, each equipped with a diverse range of freely accessible resources that promoted inclusivity and encouraged exploration. Such environments supported a curriculum that was both enriching and responsive to all children’s needs. In settings where this approach was evident, comfortable rest areas were thoughtfully provided, allowing children to relax and immerse themselves in a variety of books and other materials that were relevant and meaningful to their learning experiences.
In the best examples, outdoor learning environments were integrated seamlessly with the indoor environment, extending and complementing the rich and varied learning opportunities offered indoors. Inspectors noted that these elements often created a dynamic and nurturing setting that supported holistic learning and development. Most ELC settings implemented child-centred, play-based curricula informed by Aistear, the Early Childhood Curriculum Framework ( 3 ).
In settings where most effective practice was observed, the planning approach was flexible and responded to children’s interests and developmental needs. Such settings had adaptive short-term plans based on regular observation of children’s engagement in activities and with specific resources and materials in the learning environment. They demonstrated an understanding of the importance of ensuring that the planning of learning activities and experiences was closely assigned with the children’s needs and interests.
Inspection reports note how relational pedagogy was used effectively in settings through, for example, the educators engaging in play-partnering and open-ended questioning, and through respectful scaffolding of the children to extend their learning. In such settings, educators used interactions across the daily routine to enrich the children’s vocabulary and enable their ability for abstract, higher-order thinking.
Educators in ELC settings where inclusive practices were well developed showed a strong commitment to supporting children with additional needs to participate fully in all aspects of the educational programme on offer in settings. The most effective practice observed in settings was usually supported through active partnerships with external agencies and, most notably, through the implementation of the Access and Inclusion Model (AIM) ( 4 ).
While many ELC settings have made considerable progress in improving the quality of processes to support all children’s learning, some settings were identified as needing to enhance the educators’ access to resources, materials and professional development opportunities that emphasise child-centred planning, assessment for learning and the integration of progression plans for each child into curriculum planning.
In ELC settings where effective practice was observed, the educators enabled the children’s independence, focus and resilience as they navigated their learning experiences. They provided opportunities for the children to choose activities based on their interests, thereby fostering the children’s sustained engagement in activities, providing opportunities for the children to solve problems and to play cooperatively. They actively promoted the children's social skills, fostering peer interactions and guiding children in shared play and group activities. The children expressed their thoughts, ideas and creativity through storytelling, sensory play, messy play, painting and moving through music. They had free access to a wide range of mark-making materials daily.
Such settings ensured that the children experienced achievement regularly. Educators often displayed children’s artwork, photographs and project work, reinforcing their accomplishments and building a sense of pride in their learning journey. In ELC settings with exemplary practice in this quality area, children were consulted regularly and their opinions were valued by educators.
Another characteristic of effective practice in ELC settings was the effort made to support children for whom the main language of the setting (English or Irish) was an additional language. At times, educators interacted with children using their native language and showed knowledge of the children’s home language. Educators had also reached out to parents or other groups in the local community to find support with managing the multiple languages of children in the setting.
In ELC settings where effective practice was evident, children were encouraged to collaborate and share roles in play which effectively supported the development of positive social skills. They were supported to practise and develop core skills and dispositions such as empathy, generosity, resilience, communication and teamwork. Children were also developing foundational skills such as problem solving, experimentation and scientific thinking through play. They had many and varied opportunities to develop literacy and numeracy as part of their daily routines.
While many ELC settings provided opportunities for children to compile learning journals, the use of these materials to support children’s ability to think about and understand their own learning journey was less well developed. This also extended to the sharing of such artefacts with parents and families to allow them to appreciate children’s progress and achievements and reinforce and extend these within the home.
In the context of the increasingly diverse population of children attending ELC settings, there is an ongoing challenge for educators to establish effective supports for early language learning. The language diversity of staff within ELC settings could be used more effectively in supporting children’s early awareness of both language and cultural diversity.
The development of children’s early literacy and numeracy skills could be further enhanced across many ELC settings. Integration of these skills into play environments, through increasing children’s access to literacy and numeracy resources, including mark-making tools, storybooks and real-life resources, enables children to develop early literacy and numeracy skills in a natural, play-based context.
Inspection reports identified a need to address barriers to children’s creativity in some ELC settings. A focus on art activities that rely on templates or pre-structured outcomes can hinder children’s freedom of expression, opportunities for exploration of different creative media and their innate sense of autonomy. There is still a need to reinforce the benefits of focus process-oriented art projects, where children engage in open-ended exploration, experiment with materials, and express themselves freely.
In ELC settings where high-quality practice was observed, the leadership facilitated a reflective, collaborative culture among the educators in the setting. The leaders encouraged regular professional reflection, facilitated team discussions and supported ongoing professional development, which fostered a cohesive team environment dedicated to improving educational outcomes. Staff in such settings often reported that they felt validated in their work through regular support and supervision opportunities. They were encouraged to engage in ongoing professional development and reflective practice, supporting continuous improvement in educational quality.
Parental involvement and community engagement were prioritised in such settings. Parents were actively involved in the learning process, providing regular updates and involving them in events. Continuity and coherence in children’s early learning experiences is a strong predictor of quality. A commitment to these principles was evident to inspection teams through actions such as building familiarity for children with daily routines, fostering emotional security, involving parents, and creating a consistent and inclusive environment.
Inspectors recognised highly effective practice in relation to children’s transition to primary school in some settings where educators had consistent approaches in the preparation for primary school and had established positive professional relationships with the local primary schools.
While there was evidence of many effective practices to promote positive transitions and curriculum continuity between ELC settings and primary schools, supporting transitions can be a challenging aspect of practice for professionals in both contexts. The theme of transitions, with particular reference to the work of primary schools, is explored in greater depth in Chapter 10.
Where further professional development was considered necessary by inspection teams, this focused on areas such as conflict resolution, pedagogical strategies such as assessment for learning, sustained shared thinking, responsive interaction strategies and strategies to support children’s right to participation in decision-making.
Investment in leadership has the potential to affect all dimensions of quality in the ELC setting. Support for leaders and managers to balance their operational and pedagogical leadership responsibilities is a crucial component of high-quality education provision in ELC settings, particularly in larger settings. Inspection reports frequently flagged the need for increased distributed leadership in settings, particularly in larger ELC provision.
The findings from early years education inspections reveal a sector that is making significant strides in providing high-quality early learning experiences for our youngest learners. ELC settings are demonstrating strengths in fostering belonging, creating stimulating learning environments and implementing child-centred, play-based curricula. The commitment to inclusive practices and the development of strong partnerships with families and communities are also particularly noteworthy.
However, the analysis also highlights some areas for continued growth and improvement. There is a need for greater investment in cultural and community connections, enhanced support for early language learning and the further development of leadership capacity. As the sector continues to evolve and grow, addressing these challenges will be crucial in ensuring that all children have access to high-quality early learning experiences.
