Norma Foley
Kerry · Fianna Fáil · Ireland
“Therefore, the means by which the motion proposes to address the challenges raised may not specifically align with the approach being taken, but I absolutely accept that the underlying goals are the same and I accept the Deputies' sincerity in seeking to achieve them.”
“I intend to bring forward specific proposals arising from this work towards the end of the year, depending on progress and the outcome of ongoing engagement with stakeholders.”
“Working with that office, the Department of Children, Disability and Equality is absolutely committed to seeking to expand and reform specialist disability services in order to maximise individuals’ independence and support them to live lives of their choosing in places of their choosing.”
“A number of new measures are in train to move towards planned provision of residential supports, including the provision of planned residential placements under a new initiative, as outlined in the HSE’s 2026 national service plan.”
“I absolutely accept they are fighting tirelessly to highlight the need for us to ensure their loved ones are cared for and provided with appropriate housing, as and when it is needed. For far too many families, placements are made at the last minute, causing distress to individuals and their families.”
“In line with commitments contained in the programme for Government and the national human rights strategy, the Department of Children, Disability and Equality is now developing a new vision and reform strategy for disability services.”
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“I welcome the opportunity to provide an update on the matter. I am pleased to confirm that historical fee data is now available on the national childcare service search for fees from the 2021-22 programme year to the present programme year. I acknowledge that this was very important to the Deputy and that he pursued it for some time. The portal hosting this information was originally designed to contain information for the current programme year only. However, the portal was recently upgraded following a concerted effort between the Department and Pobal, the scheme administrator, during a busy period with competing ICT demands due to the commencement of the 2025-26 programme year. The Department is committed to ensuring information is transparent about fees charged to parents, in line with commitments in the programme for Government.”
“That will be somewhere between six and eight services and we will build on this year on year as we go on. In terms of other supports that are being provided for, other resources have been put in place in the Fingal area. Two services in Fingal have been shortlisted in 2025 for the building blocks model, one in Clonsilla and one in Lusk. Some €334,375 is being made available under the private extension strand to support additional places being provided. The State-led model is a new initiative and will take time. We have begun the work and we will see it materialise in 2026.”
“Let us be clear: when it was first conceived, the forward planning unit had absolutely nothing to do with the State-led model. The State-led model is an innovation of this Government, which is in place less than nine months. The Deputy is conflating two things that have nothing to do with each other. Let us have absolute clarity about that in terms of the timeline the Deputy is talking about. The Government is committed to delivering the State-led model, beginning this year, as part of a five-year Government commitment. We will do that work. We are committed to beginning that work and having the State-led model beginning to be in place in 2026. It will deliver, as I have said, somewhere between 600 and 800 places, depending on how many of the specific services we can put in place.”
“This will allow for a variety of things, including the acquisition of new builds, the expansion of existing facilities or whatever the case might be. In 2026, it is anticipated that this public model will deliver between 600 and 800 places. It will facilitate seven or eight new, specific, public-led models as the first step in a journey that will be completed over the lifetime of the Government.”
“To be quite honest with the Deputy, I am not sure where the two years is coming out of. I am speaking on the programme for Government for this Government. The Deputy is aware it was this Government that put into the programme for Government the commitment to deliver State-led facilities - not the last Government, this one. As this Government has been in place for less than nine months, I am at a loss to understand her timeline. Specifically for delivery, the work of the forward planning unit must be allowed to continue. Specific funding has been made available for 2026. I have given a commitment that in 2026 the public-led model will begin its journey, as it were. Some €36 million in capital funding is available for 2026.”
“Other factors will reflect the policy goals of the Department to support a high quality, inclusive and accessible early learning and childcare system and to ensure value for money. The forward planning model is being designed primarily as a tool for internal analysis. The maps and data the model will produce will contain projected categories of data and will therefore not be made generally available in full. As the model is further developed along with accompanying policy work related to supply, aggregated statistics, including statistics broken down by geographical area, may be made available if this is deemed compliant with data protection obligations. Preparatory work for this programme of capital investment is under way and the programme is planned to commence in line with the revised NDP allocation from 2026 onwards.”
“The model seeks to identify the nature and volume of different types of early learning and childcare places across the country and how that aligns with the numbers of children in the corresponding age cohorts at local level. An extensive data analysis and cleaning exercise is currently being undertaken to map available publicly subsidised supply. This involves combining data from multiple administrative sources, including child population data, using GIS mapping tools. The analysis of the forward planning model will provide a key input into the approach to the capital programme to be resourced through the allocation in the revised national development plan for 2026 to 2030. It will be one of a number of factors considered when selecting and prioritising projects.”
“Improving access to quality and affordable early learning and childcare is a key priority of the Government. Overall, early learning and childcare capacity is increasing. Data from the annual early years sector profile in 2024 shows the estimated number of enrolments has increased by 19% in the previous two years. However, it appears that demand for early learning and childcare remains higher than available supply in certain parts of the country, particularly for younger children. The development of the forward planning model is currently under way using the expertise of statisticians on secondment from the Central Statistics Office and other specialists.”
“I have said previously we could not do the work without the engagement we have from the city and county managers and the planning and land use committee. I acknowledge an important step was when we met with individual local authorities where they were sharing their experience of applying the guidelines, what worked and what did not work. I acknowledge it works better in some places than in others. I will continue to engage with the Minister for housing on this matter as a priority.”
“I do not disagree with the Deputies. I am conscious this is a logjam and a challenge that should not be there in the first instance. I have always been of the view that where you have housing, you need to have early learning and childcare facilities. You need to have schools. You need to have, as the Deputy said, community developed around it. There are too many stumbling blocks and it has been made far too easy for people to renege on early learning and childcare provision. Honestly, the date and time is not within my gift and the Deputies will appreciate that. That is a matter for the Minister for housing but I have engaged with him and will continue to do so. Significant work has been undertaken by the working group, some in 2024 and throughout 2025.”
“They have been helpful in this regard and this has informed our engagement on the ground with the various local authorities. It would appear some local authorities are better than others so there are opportunities to learn from best practice in one over the other.”
“I appreciate how infuriating it is and I could identify them myself in various areas, where these specific buildings, which were committed to be early learning and childcare facilities have either had a price placed on them that is far beyond what anybody could pay or the design of the building, on occasion, sometimes is not even appropriate. It is there in name as an early learning and childcare facility but in reality, the manner in which it has been built is not appropriate for that. Capital investment, which the Deputy referenced, may be required to fit it out. Oftentimes, the developer may choose to go for a change of use. All of these are the issues we need to knock on the head. We have engaged on the ground and I acknowledge the engagement we had with the city and county managers.”
“The approach more widely to ensuring appropriate levels of early learning and childcare supply is core to the work of this Department and will be further articulated in the context of the action plan to build an affordable, high-quality and accessible early learning and childcare system that Government has committed to publishing.”
“These issues include ensuring that buildings developed on foot of the guidelines meet the needs of the local population and are fit for purpose and balancing the need to ensure sufficient provision for children and families, regardless of the size or housing type of the development, with ensuring that buildings are effectively operated as intended when they were first built. In parallel, planning is under way to capture the views of other stakeholders who will have an interest in the revised guidelines. I am also engaging directly with the Minister for Housing, Local Government and Heritage to determine how best to support and inform the drafting of revised guidelines under the new planning and development Act.”
“The 2024 Planning and Development Act and the publication of the national planning framework now provide a strong basis from which to pursue this work. An early learning and childcare planning matters working group with officials from my Department, the Department of Housing, Local Government and Heritage and the Department of Education and Youth was established in 2024 and has met on a number of occasions across 2024 and 2025. Meetings have been held since summer 2025 with members of the working group with officials from different local authorities who were nominated by the City and County Managers Association planning and land use committee. This engagement with nominated planners was effective in identifying a number of important considerations for the review and is now informing a wider engagement with local authorities on the ground.”
“The 2001 planning guidelines for local authorities on early learning and childcare settings were issued under section 28 of the Planning and Development Act 2000. The guidelines are intended to ensure a consistent approach to the treatment of planning applications in respect to the land use planning aspects of early learning and childcare provision. The 2001 guidelines have contributed to the creation of supply in residential developments. However, the Department is aware that there are instances where the building provided has not been put to use for its intended purpose and in some instances remains vacant or is being used for another purpose. The programme for Government commits to reviewing the 2001 childcare facilities guidelines for planning authorities to ensure early learning and childcare spaces are provided and put into use.”
“I would be challenged in terms of the understanding around that but I am happy to discuss it with him on another occasion.”
“As the Deputy articulated, this is a commitment across the lifetime of Government in terms of the delivery of the €200 cost. We have maintained the fee freeze at 2021 levels. Those paying who were paying the highest costs at €295 are now paying less than €200 when the subsidies are included. There is more work to be done in that space. It will be over the lifetime of the Government that we will reach the target of the €200. On the challenges in cost of living, I feel they are across the country. It is a difficult thing to say the cost-of-living challenges are greater in one party of the country than in another, notwithstanding the fact there can be nuances in different areas. I am happy to speak to the Deputy about that at another time.”
“I concede that there are those that have left but, in the round, nationally, we have the highest level of providers choosing to be part of the core funding model, at almost 93%. We have never had it as high, notwithstanding, and I understand the challenges in the Deputy's area, that in certain areas people have chosen to opt out. In terms of supports being provided in core funding, there has been an unprecedented investment by the State, in the first instance in year 1 of €259 million invested by the State, which in 2026 will rise to €437 million. It is hugely significant. Lots of providers say one of their greatest challenges is staff, staff retention and attracting staff. A total of €45 million was ring-fenced by the Government last year to ensure that would go towards improved salaries for staff.”
“While the State cannot mandate providers to participate in the scheme, core funding has been designed with maximum participation of providers in mind, as reflected in the year-on-year growth of investment in the scheme rising from €259 million in year 1 to approximately €437 million in 2026.”
“I am aware that a small number of service providers have, regrettably, chosen to withdraw from the core funding scheme. However, uptake of core funding remains strong and the absolute numbers of providers participating in the scheme nationally are at record levels. As of 10 November, there were 4,533 services signed up to core funding, which accounts for over 92.5% of all services and is the highest number of services signed up to core funding since it was launched in 2022. The number continues to grow. In the interest of clarity, transparency and consistent reporting, I have defined a service that has left core funding as any service that had a gap between contracts for core funding of four or more weeks.”
“The 2026 allocation for core funding will also support implementation of the recently announced employment regulation orders, which led to a 10% increase in the minimum rate of pay for educators from 13 October. There will also be enhancements in year 5 of core funding to improve pay for educators and school-age childcare practitioners with implementation of new employment regulation orders. Further steps will be detailed in the action plan on accessible, high-quality, affordable early learning and care and school-age childcare, which the Department is continuing to develop. The action plan will be informed by a broad consultation process and will set out plans to achieve programme for Government commitments including the commitment to reduce maximum monthly fees to €200 over the lifetime of the Government.”
“The Government is committed to ensuring access to affordable, quality early learning and care and school-age childcare, with an investment of €1.48 billion in the 2026 budget. This funding will allow the Department to build on recent progress in the gradual reduction of fees for parents while also supporting supply and the quality of provision. Budget 2026 enables core funding to continue to support fee control measures and will also allow for growth in the sector. The allocation of core funding in 2026 will ensure fees remain at 2021 levels for a majority of providers. As well as this, a new maximum fee cap will be set to reduce costs for families paying the highest fees across the country. Further details of the new lower maximum fee caps will be announced in the coming months.”
“Again, that is a matter for the national review panel. Prior to anything being published, it will have to be with the permission of the Attorney General. It would have to go through all of that, so as soon as all the Attorney General's work is completed.”
“It is an ideal opportunity now for us now to tighten up where we need to from a legislative point of view. That will include the national review panel and strengthening the child protection legal framework and the powers Tusla has available to it.”
“I recognise that it is a whole-of-house determination to do right here and, where we can improve things and make things better, that we would absolutely do that. The first step for us, of course, is the well-being check in terms of specifically having eyes on children where cases were closed during Covid. I will be led by the steering group on the timeline for that. I will respect its independence in terms of that, but I would be hopeful that we are talking about just a matter of months in that regard. Again, however, I will not be dictating to it. I will allow the work to take place, but I would like it to be done in the tightest timeframe possible. I want it to be a full body of work as well, but that we would speak of months rather than anything else. I will provide briefings and so forth on the childcare amendment Bill.”
“As I already mentioned, there is funding of €3.2 million being made available. The Deputy referenced other measures that could be done. I will shortly be bringing forward a Bill updating and modernising the Child Care Act, which provides the foundation for child protection and welfare services in the State. This will strengthen the child protection legal framework and the powers available to Tusla. I also intend to bring forward amendments via the childcare Bill 2025 to place the national review panel on a statutory footing. This will further enhance the work of the national review panel and will strengthen its independence and ability to compel information and witnesses in respect of all reviews that it undertakes.”
“I appreciate all the points the Deputy raised. I do want to say that it is not just the setting up of the check and putting in place the independent steering group and all that. Engagement has also taken place with other Government Departments to explore opportunities for appropriate data sharing to establish where the children encompassed by this review are currently or recently known to the relevant State services or State-funded service. On other things that have been done, the national lead has been appointed, a well-being check team manager has been appointed, a digital case management system is in place to support the work of the teams and so forth. Again, I can confirm that I have met with the chair of the independent steering group on her appointment and, indeed, I will be doing so again in advance of the commencement of phase 2.”
“The membership of the steering committee has been finalised and includes representatives from a variety of Departments including Social Protection, Health, Education and Youth, and Justice Home Affairs and Migration, along with representatives from the Health Service Executive, the Central Statistics Office, Tusla, Barnardos and an independent social work expert.”
“With regard to the well-being check, which we referenced earlier, its purpose is to proactively test and strengthen the current safety net the State provides for children’s welfare and protection and to provide assurances about the welfare of vulnerable children. The well-being check is focused on cases that were closed to child protection services during Covid-19 and relates to cases where there has been no further contact with the child since. As I already confirmed, the well-being check will be overseen by the independent steering group, which is to be chaired by Ms Tanya Ward, the CEO of the Children's Rights Alliance. As I said earlier to the House, I can confirm that phase 1 of the project is under way and a number of steps have been taken to date.”
“I can say that, as soon as Tusla became aware of these cases, the Department was notified immediately through the agreed protocols and procedures in place. There has been ongoing engagement with Tusla relating to Tusla's own internal reviews of each specific case and on any recommendations that have arisen to date as a result of these internal reviews. I have directed the national review panel to undertake a review of each case as a matter of priority and to make findings and recommendations in respect of these as deemed appropriate. The national review panel is independent and has the remit to review serious incidents, in particular where there is suspected or confirmed abuse of a child in care.”
“I thank the Deputy for raising these matters. As we said previously, they are matters that are of enormous concern to all of us in this House and, indeed, right across government and I would say right across society. I want to say sincerely that I am deeply saddened by the very tragic cases that have come to light, and I extend my own sympathy and thoughts and those of the Government to the families and loved ones of these children and young people. I appreciate that the Deputy also acknowledged that these cases are the subject of active and ongoing investigation by An Garda Síochána, and it would not be appropriate for me to comment on the specific details that could, even inadvertently, prejudice that very important investigation by An Garda Síochána.”
“Whether that is education and training, supporting personal group development, offering practical assistance to individuals and community groups, such as to access technology or office facilities or whatever the case might be for the very young or older members or those at any age or stage in life, there is support to be found at the family resource centres. It is my ambition to ensure that we will provide a greater number of family resource centres and that we will also improve the funding to the resource centres.”
“As I said, it is a strong commitment from Government that we will increase the number of family resource centres. I am conscious of the need to improve the core funding that goes to the centres. I am very pleased that, in budget 2026, I am in a position to have secured funding that will ensure there will be an additional ten family resource centres. I am also in a position to say that I secured funding that will increase the €160,000 base that is provided for in core funding. The great thing about family resource centres is that they do a multiplicity of work and provide a multiplicity of services. The door is open to everyone. Whatever the need might be, family resource centres, in my experience, will always find a way to meet that need.”
“I can confirm to the Deputy that I have secured additional funding. We are currently working on that and within a short time, I should be in a position to confirm exact funding. There will be an increase in funding from the current figure of €160,000.”
“I thank the Deputy. I know first-hand from the Deputy the benefits of Trim Family Resource Centre and the great work it does. She has spoken to me frequently about that. With the resources they have, more and more is being asked of family resource centres and they are constantly stepping up to the mark to deliver. The Deputy outlined the great variety and breadth of work that is being provided by Trim Family Resource Centre, which is a testament to the determination to deliver on-the-ground services for the community. People may be aware that the funding equalisation scheme for the family resource centre programme was initiated in 2024. This ensures that all programme members received minimum core funding of at least €160,000 from 2025 onwards. Core funding principally covers the salaries of staff along with some operational costs.”
“In line with the programme for Government commitment to work to increase funding and expand capacity and the network of family resource centres, I am delighted to report that I secured additional funding in budget 2026 for the further expansion of the family resource centre programme by increasing membership by ten to 136. This will see more people benefiting from the many positives that the centres bring to communities. I expect Tusla will be in a position in the near future to confirm the locations of the additional family resource centres on the basis of need, determined by the published criteria. I appreciate that is a significant uplift to a local community, given the breadth of work the centres do on the ground.”
“The five successful services joining the programme were announced on 29 August and are based in Dublin, Galway, Kildare, Louth and Monaghan. I understand Tusla and the family resource centre national forum will be on hand to assist the new services in assimilating into the programme. The selection process was outlined in the Tusla outcome letter issued to all unsuccessful applicants following the announcement of five new programme members by press release on 29 August. Applicants were also informed that their application will remain under active consideration should additional funding be secured for further expansion of the family resource centre programme in 2026.”
“I thank the Deputy. As she may be aware, the family resource centre programme is expanding from 121 to 126 members this year. Funding for the expansion was secured by the Department in budget 2025 and I want to acknowledge in the Chamber the former Minister, Deputy Roderic O'Gorman, in that respect. Regarding the expansion of the family resource centre programme, a comprehensive national application and assessment process was undertaken earlier this year, which was led by Tusla and independently chaired by a representative of the University of Limerick. All applications were reviewed and scored against clearly defined and published criteria, including population need, the level of deprivation, child population data and existing service provision and gaps. This year's expansion is the first since 2018 and is a very welcome development.”
“There is a commitment over the next four years, the lifetime of the Government, that we will do more and more in this space in terms of the public-led model. It will involve a combination of what we are doing in that regard, along with the building blocks scheme. As I said, we must not forget that we need to have staff in place. We also need funding for providers.”
“I thank the Deputy. On areas for the State-led public model, there is a forward planning unit in the Department, which is positive. It is specifically examining areas where there is demand but no service provision. I acknowledge that the Deputy has consistently raised issues in her area and the technicalities around the building blocks scheme, in particular for the cohort in Boyle. I am committed to a building blocks scheme in 2026. The detail of that has not yet been worked out, but the principle is there. In terms of delivery for the State-led model, it is our expectation that anywhere between 600 and 800 additional places will be involved as a first step, together with between six and eight premises.”
“This follows on from the successful building blocks scheme in 2025 that is currently operating and will deliver up to 1,500 new places for one to three-year-olds. In terms of the delivery of places, extensions will be provided for and there will be a State-led model. We will also ensure that when we have places, we also have staff. The delivery of an ERO is also important, as is the increase in core funding for providers.”
“I thank the Deputy. In terms of capital expenditure, for the early learning and childcare sector that will comprise €36 million in 2026, thereby allowing the Government to accelerate its work to ensure the supply of early learning and childcare meets demand. The year 2026 will see for the first time the acquisition of buildings to provide the infrastructure for State-led early learning and child care delivery, something which is very close to the hearts of most people here, including Deputy Kerrane. For the first time, a public model of early learning and childcare will be provided for. Alongside this, I will open a further building blocks scheme in 2026 to allow for extensions to existing premises to support services to offer additional full-day places.”
“Next year, the allocation for core funding will rise by 15%, with the allocation for year five of this scheme set to reach at least €437 million. On top of this, the Government will make available additional funding next year for further improvements to staff pay. This significant level of funding will support a range of key Government priorities next year and into year five of core funding. It will allow us to continue to support growth in the sector, which we estimate will be 4.2% in year five of the scheme. It will allow us to continue to support providers with the cost of employment regulation orders. It will allow us to support providers to sustainably maintain the fee management conditions that are attached to core funding, including a new maximum fee cap that will be introduced in September.”
“A figure of 8,400 pre-school children with a disability or additional learning need will benefit from the highest level of support provided through the access and inclusion model, enabling their meaningful participation in the ECCE programme. This is an increase on this year's figure of 7,900 pre-school children. We will also see an increase in the number of services designated for targeted supports under Equal Start and an increase in the numbers of children benefiting from these targeted supports, including through the new Bia Blasta pre-school nutrition programme. This year, 787 services serving 35,000 children have a priority designation under Equal Start. Next year, we estimate that 820 services serving 37,000 children will have this priority designation.”
“In 2026, current expenditure for early learning and childcare will rise to €1.48 billion, representing a year-on-year increase of 9% or €125 million. This additional funding will deliver real and meaningful change to the lives of thousands of children and their families in 2026 as well as to early years educators, school-age childcare practitioners and providers. Some 105,250 children will be supported to access free pre-school education under the ECCE programme next year. Furthermore, 286,000 children will benefit from their statutory entitlement to the national childcare scheme subsidies to offset the cost of early learning and childcare next year. This represents a year-on-year increase of 14%, with 35,000 additional children to benefit from the scheme next year.”
“It is quite significant and I do not regret one single penny of it. The welfare of children is at the heart of all of this. I am confident that the independent chair is a person of particular and significant standing in terms of child welfare. I am very confident of her independence in the chair. The work that needs to be done will be done effectively for the benefit of the children.”
“I absolutely do not in any way question Deputy Farrelly's sincerity. Equally, I have to say this is not "a knee-jerk reaction". This is an important body of work. There is concern around cases that would have closed during the Covid-19 pandemic, notwithstanding that it can be such a positive when a case is closed by Tusla. It can be a really positive outcome. I am very conscious that many cases are reopened again and again; that is the nature of the work. It is important that we take the time to do this work. A figure of €3.2 million has been made available to do it. Indeed, Tusla in general received a significant uplift in the recent budget. As a matter of fact, Tusla received an increase of more than 50% between 2020 and 2025 in terms of its budget, with a further 14% uplift again this year.”
“While the recent tragic events are distressing for all - there is absolutely no doubt about that, particularly for all those who know and love the children involved - they serve as a reminder that safeguarding children is a collective duty across all State bodies.”
“I am shortly bringing forward a Bill to update and modernise the Child Care Act, which provides the foundation for child protection and welfare services in the State. This will strengthen the child protection legal framework and increase the powers available to Tusla. I also intend to bring forward amendments via the child care Bill 2025 to place the national review panel on a statutory footing. This will further enhance the work of the national review panel, as well as strengthening its independence and its ability to compel information and witnesses in respect of all reviews that it undertakes.”