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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“Be assured that everything is in the mix for this forthcoming budget and we consider everything, including Building Blocks. We have had a scheme this year and in the previous year.”
“I acknowledge the Deputy's advocacy on an ongoing basis. I get that from Deputy Martin Daly, from councillors and from everybody across the system. They are very well situated to advocate. I get it from my Fine Gael colleagues as well. We are very conscious of the fact that State-led is one element while Building Blocks is another. If we can pour more into both or, indeed, other initiatives, we are happy to do so. It is a significant step forward in terms of State-led. We have never done this before and we are able to stand up eight this year. The Deputy specifically referenced buildings being made available. That is the purpose of State-led at this point, in that where buildings are readily available, we can access them quite quickly and move on to finding not-for-profit providers.”
“A further five projects are being prepared for submission for approval in principle. No final decisions have been made on the specific projects, but I look forward to sharing the details of the projects as they are agreed. Local city and county childcare committees are supporting the development of projects. In that context, community early learning and childcare operators, local authorities, developers and others who might have suitable premises or projects should contact their local committee. On building blocks, everything is being considered in the context of the budget. We will see how we go with that.”
“I agree entirely in terms of what we are seeking to achieve in early years. It is equality of opportunity for children in the first instance. That is probably the most important element, but it is much more as well. It is also equality of opportunity for women in many respects in order to allow them, as the Deputy outlined, to go out and take up other opportunities should they choose to do so. I want to comment on where we are at currently. The final business case is considered by the capital steering group prior to being submitted for approval. Only once a final business case has been developed, which provides full details of a project, can final approval for funding be sought. To date, four projects have received approval in principle and are being developed.”
“It is important to note that this is not a guarantee of funding for a project; it is, rather, another step along the way. Following approval in principle, a final business case is developed for the project which includes selection of an eligible operator, agreement of investment or purchasing a building, and detailed building design and costing work.”
“Project proposals can be brought to the attention of the Department through completion of a preliminary appraisal form, which is available from the city and county childcare committees. When a suitable project is brought to the Department, the forward planning and delivery unit develops a preliminary business case. The preliminary business case assesses the building and the location associated with the project against the programme's appraisal criteria, as well as analysing cost, value for money and the quality of the proposed building. The preliminary business case is considered by a capital steering group comprising senior Department officials and members from the Office of Public Works and the Department of Education and Youth. It can then be submitted for approval in principle.”
“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 number of children in the corresponding age cohorts at local level. An extensive data analysis exercise has been undertaken to map available publicly subsidised supply. As well as a forward planning model, a suite of appraisal criteria and tools is being developed in order to assess potential adjustment and alignment of projects with Department goals of promoting equality, inclusion, accessibility and affordability. The Department is assessing project options in order to identify which are best placed to deliver on the goals of the programme. Analysis of project options is advancing well.”
“I appreciate the Deputy's interest in this matter. She has advocated very strongly in respect of it. I can confirm that €135 million is being made available between 2026 and 2030 for the State-led early learning and childcare capital programme to facilitate the provision high-quality and accessible early learning and childcare. The process begins this year, with investment in buildings in what is a groundbreaking initiative for the Department of children. Capital funding will be used to acquire and-or fit out buildings depending on requirements. The Department will work with not-for-profit providers to design, open and operate services. These will be not-for-profit services. To assess potential sites, a forward planning model has been developed.”
“I already mentioned something that has been fought very hard for by so many different people in terms of children at risk of disadvantage, namely that the thresholds have been increased from €26,000 to €34,000 and from €60,000 to €68,000 in order to maximise people's access to the national childcare subsidy. Some progress has been made. There is more progress to be made, and we will continue that through phase 2 of the action plan.”
“I look forward to working with the Deputy at the committee. Just to be clear, 25% of families are already on the €50 per week or are paying less than that. I absolutely accept that there is much more work to do. In recent weeks, we have introduced the fee caps. The full cost for families availing of just less than 50 hours' service - this is the full day service that the vast majority of parents are availing of - is €198 per week. That is when the national childcare subsidy is included. That will now be reduced to €183 per week. We are seeing progress.”
“The lower income threshold for the income-assessed subsidy has been increased from €26,000 to €34,000 in order to ensure that families with incomes below the relative poverty income line receive the maximum subsidy. There has also been an increase in the upper threshold.”
“In the interests of clarity, we must be clear that after any election there is a negotiation with various parties to make up a Government. As part of that, a programme for Government is written down and committed to. Those are the plans which will be committed to over the lifetime of the Government. I was involved in the writing of the programme for Government. When that was being done, the commitment was clear. This Government involves a number of parties and individuals. The programme for Government lays out that over the lifetime of the Government, the cap of €200 will be achieved. There is no deviation in that regard. There is no equivocation. It was made clear when the Government was formed. As already stated, there has been progress in terms of a reduction in costs for low-income families.”
“In addition, from autumn 2026, we will reduce out-of-pocket costs for lower income families through the national childcare scheme.”
“It includes an online survey which has received more than 11,000 responses; 56 local consultation events right across the country; an art-based engagement exercise with children; and a national consultation event, which is scheduled to take place later in the year. Results of this consultation, and additional analysis, will inform phase 2 of the plan. Phase 2 will set out actions to be undertaken from 2027 right through to the end of 2029. The fee freeze and maximum fee caps required for core funding have been key to the progress in recent years in making ELC and SAC services more affordable. The 2026 actions on affordability will include further reduction in some of the highest fees paid by parents by lowering the maximum fees that core funding partner services can charge.”
“I wish him well regardless of where he has moved to. Anyway, I welcome Deputy Ennis. In relation to the question he has asked, I have always been clear in communicating that the €200-per-month programme for Government commitment is to be achieved over the lifetime of this Government. Shaping the Future: Early Years Action Plan, Phase 1 Report, published last December, sets out measures to achieve key programme for Government commitments on the affordability, quality and accessibility of early learning and care and school-age childcare. The action plan adopts a phased approach that enables action to be taken in 2026 while allowing adequate time for a broad public consultation and analysis on longer term actions. The consultation process has a number of channels designed to facilitate the participation of a wide range of stakeholders.”
“I wish Deputy Ennis well in his new position as spokesperson for his party on all matters to do with children. I acknowledge his predecessor, Deputy Farrelly, who gave 110% to his spokesmanship. I wish him well in his new appointment. I think he is in transport now, is he?”
“I would also like to confirm to the House that the Department has also engaged with children and young people on a consistent basis in the past year both through the care experiences project and through the significant consultation that has been undertaken as part of the development of a new national policy framework for alternative care. Combined, this research and policy development will allow us, as a State, for the very first time, to take a strategic approach towards the future of the care system, guided by the lived experience of the young people who have first-hand experience of the care system.”
“This investment will support Tusla to expand its residential care, as has been outlined by the Deputies, including the provision of step-down units for children leaving special care. Three new step-down units are scheduled to come on stream. Two will become available in December of this year and one in January of next year. This will, in turn, add to capacity in special care going forward. As I said, significant work has also been undertaken to reduce the number of unregistered special emergency arrangements. Last year, there were 170 such facilities and we now have reduced this number to 70. We will continue to do more in this space going forward.”
“In this regard, in addition to building on the capacity of mainstream residential placements for children, prioritisation has also been given to building on supports with respect to foster care, which resulted in a 21% increase to the foster care allowance in 2024, a new initial placement payment to foster carers, improved travel allowances and greater access to therapeutic and peer supports. I want to assure the Deputes that officials within the Department are proactively engaging with their counterparts in Tusla to continue to build on the supports that foster carers can avail of. The Department also expanded Tusla's capital budget to €35 million in 2026, which represents growth of 100% since 2024. That refers to the provision of additional residential places.”
“I thank the Deputies for raising this important issue. In order to overcome the challenges within the care system that were highlighted on the programme and which have been raised by the Deputies, which I acknowledge, the Department secured an overall increase of €177 million for Tusla in the most recent budget. That is representing a 14% increase in Tusla's budget over 2025. This brings Tusla's total budget to over €1.4 billion. Additionally, Tusla plans to invest a total of €286 million in expanding mainstream residential care in 2026; an additional €53 million of current funding compared with 2025. As I mentioned previously this evening, 96% of all children in State care are placed in foster care or residential care.”
“It is important to note the number of unregistered special emergency arrangements has significantly reduced this year. Some 19 centres are now categorised in line with legislation as emergency placements under the governance of Tusla and subject to inspection and monitoring by HIQA; 35 centres are in the process of registration; and 19 centres have completed registration and will be subject to Tusla's inspection and monitoring service in line with all private residential placements. This means that by the start of May this year, Tusla will have reduced the number of emergency placements that are not registered by almost 50%. The work to move that to a zero point continues this year.”
“Significantly, the use of special emergency arrangements to provide placement for separated children seeking international protection has reduced significantly over the last year, dropping from 105 at the end of 2024 to three as of last week. As I mentioned last week, these three are, in fact, cases of disputed age and as a result are being placed in special emergency accommodation until the issues that have arisen are resolved. The reduction in numbers being facilitated in special emergency accommodation has been achieved by opening 79 additional registered residential centres to support the large number of unaccompanied minors in the State. The Department is also proactively supporting Tusla to improve the availability of further placements and expand capacity across its network.”
“Tusla had approximately 5,661 whole-time staff at end of 2025, 343 more than at the same time in the previous year, including a 3.15% rise in social workers. As regards special emergency accommodation, Tusla has experienced a 500% increase in the number of separated children seeking international protection being referred to the agency since 2022, along with an increasing number of children with more complex needs. This challenge is not unique to Ireland. The Department, along with Tusla, recognises that the use of special emergency arrangements is far from ideal. The Department is proactively supporting Tusla to improve the availability of placements and to expand capacity across its network.”
“Nine out of ten young people in foster or residential care are engaged in education, and three in every four young people leaving care and entering aftercare services are now participating in education and training, according to the CSO. However, Tusla also deals with children and young people in care who are often coming from highly traumatic situations through no fault of their own, and in some instances foster care and residential care settings can break down. Last year Tusla received 106,444 child protection and welfare referrals, up 10% on 2024. I was pleased to secure a 14% increase in funding for Tusla in the most recent budget, bringing its overall budget to €1.4 billion in 2026.”
“I will begin by expressing my thanks to Deputies Kerrane and Ó Murchú for raising this important issue and for offering me the opportunity to respond. I acknowledge, as I have previously, how upsetting it was to watch and listen to the experiences of the young people interviewed as part of last week's programme, and I commend and thank each one of them on speaking out. It is vital that we have the opportunity to hear from young people with experience of the care system and it is important that we listen to them. For the information of the House, I would like to share that the vast majority of children in State care, 96% in fact, are in foster care or residential care. In comparison with our international peers, we are doing well on this front.”
“Tusla has also provided additional resources for more supports, including community and voluntary programmes to help assess and support cases more effectively.”
“Yes. I will ask Tusla to make available to the Deputy a more specific breakdown on the different types of staff. I want to mention the training places for social workers because these have proven to be impactful. The number of training places has doubled over the past five years. At the end of 2025, there were 340 placements in Tusla, with further expansion planned. A social work apprenticeship has been introduced, with 34 apprenticeships starting in 2024 and 71 in 2025. The plans envisage that in 2026, we will have 100 or more apprentices in those training places. A similar approach is planned for social care. Tusla continues to provide retention supports and management teamwork training for workers in order that caseloads are managed effectively and equitably.”
“Measures to reduce caseload pressure in Tusla have focused on recruitment of social work and social care staff at home and abroad. We have seen an increase of over 3% in the number of social workers and we want more. We are looking at a variety of schemes, whether they are apprenticeship-style schemes or whatever else, to ensure we have sufficient social workers available.”
“I am just providing Deputy Ó Murchú the information that was given to me from Tusla. I will ask Tusla to respond directly to his concern. I want there to be 100% clarity on the issue the Deputy raised, and I thank him for raising it. That is the information I have received from Tusla. I will ask Tusla to engage directly with Deputy Ó Murchú on the matter if there is any kind of question or concern around it. I acknowledge that Tusla teams are constantly reviewing their caseloads to ensure that children with the highest priority are allocated as soon as work becomes available, while ensuring that children in urgent need of safety are prioritised for allocation. Each referral is screened and based on the information provided. As I said, the referral is prioritised.”
“Measures to reduce caseload pressure in Tusla have focused on recruitment of social work and social care staff at home and abroad, and increasing training places for social work and social care staff.”
“Tusla areas prioritise social work resources to children where their knowledge and skill is most required, and then maximising the knowledge and skill of other professions where they can competently respond to children's needs. All of this work continues to be overseen by social work managers. Tusla teams are constantly reviewing their caseloads to ensure that children with the highest priority are allocated as soon as a worker becomes available, while ensuring that children in urgent need of safety are prioritised for allocation. Each referral is screened. Based on the information presented, the referral is prioritised. As new information is received, the referral is reprioritised as required.”
“In effect, Tusla is building an integrated data environment centred around TCM that will enable the agency to deliver improved integrated reporting by the end of the Tusla's management and digital transformation strategy 2024 to 2026. This strategy was reviewed by the Office of the Government Chief Information Officer and is aligned with the overall public sector data strategy. Tusla has simplified its standard business processes to reduce inefficiencies and to maximise time with children and families, facilitating more focus on direct contact and relationship building. In 2025, Tusla experienced the largest ever demand for its services, receiving over 106,000 referrals, up 10% compared to 2024, with 96,666 referrals in 2024.”
“Tusla has informed me that it has not paused its case management system. That is the confirmation that I have received from Tusla. Tusla's case management system provides a single integrated case management system that, over time, will be implemented across all Tusla services. This case management system provides a single view of each child, young person, family, care provider and others who are engaged with Tusla. Tusla is improving its case management system. Key to this is the creation of a single record for each child and young person, which supports integrated working, including more streamlined referral and allocation systems for residential care, improved communications, accurate data to improve decision-making on an individual level and resource allocation.”
“We are currently investing €26 million in special care from budget 2026, €17 million in capital funding for 2026 to 2030, renovating and purchasing new residential elements. There are three step-down facilities in special care being brought on stream this year, two at the end of December and one in January. As I have already referenced, we have the training centre. Over €1 million is being made available for therapeutic supports for those who might be in special care, leaving special care or on the verges of special care. There is every opportunity to do more in this space. More must be done in this space. It is being done and we will continue to be proactive in this space.”
“I cannot comment on HR matters for Tusla and how staff are moved or otherwise. It would be inappropriate. It is directly a matter for Tusla in relation to the management of its staff. Concerted efforts are being made, notwithstanding the challenges that are there. I have already referenced how upsetting it was to watch the experiences of and learn from young people their experiences, as we witnessed last night. It is so important that Tusla continues to be proactive in the space, particularly in the area of special care, recognising that a huge volume of staff are required in the area of special care and recognising that special care is a particular area where young people, for the protection of themselves, are denied their liberty.”
“Tusla has also engaged with higher education institutions to establish a work-based learning programme which leads to a BA in social care. This programme is currently laying the foundation for formal establishment of a national apprenticeship scheme. Alongside these steps to improve capacity in special care and residential care, actions are being taken to improve foster care capacity, which is hugely important.”
“I acknowledge that there is an issue in terms of staffing levels for special care. We are very conscious of that. As I said, you can be dealing with very complex cases at a minimum. It is a staff requirement of seven people to one young person. In many instances, 14 staff could be required for one young person. Tusla is proactive on the ground, ensuring that there will be newer avenues or streams to bring in staff and make staff available. I have already referenced the new special care category, which is a 20% increase in wage. I also acknowledge that Tusla has recently launched a new special care training college. National and international recruitment campaigns have been undertaken, along with graduate sponsorship schemes, which is important.”
“This is expected to assist in recruitment outside of the Dublin area. Tusla is fully focused on increasing staffing levels in special care and has taken significant steps to address the current challenges, with a dedicated recruitment team undertaking targeted campaigns across a range of media, including international recruitment.”
“This represents an increase of over €6 million on budget 2025 and this investment will increase capacity and enhance provision, including funding for the new special care staff grade, staff well-being initiatives and additional therapeutic supports. As part of these therapeutic supports, Tusla has commenced recruitment for psychiatric nurses in special care. Tusla has been allocated €188 million in capital funding for 2026 to 2030. In line with the national development plan, €17 million is the indicative allocation for special care. This funding will support Tusla in upgrading, renovating or purchasing special care and step-down units. Two new step-down units are scheduled to open in December 2026 and a third in January 2027. Tusla has commenced a project to repurpose a facility in Cork into a special care centre.”
“Children with particularly complex needs may require up to twice that level of staffing resources, or 14 staff to one individual child or young person. Department officials continue to work with Tusla to support it in addressing the staffing shortages in special care provision. A new grade and pay scale for special care has been introduced in an effort to increase staff numbers. This new Tusla special care worker grade offers an improved salary scale, with pay at the top of the scale 20.3% higher when compared with the social care worker grade used across services more broadly. A total of €26 million was allocated for special care in budget 2026.”
“I thank Deputy Kerrane for the question. Tusla has statutory responsibility for the operation of special care and the provision of special care beds. The Department recognises the significant challenges facing special care and is actively engaging with Tusla to address these challenges. Tusla has indicated that difficulties in the recruitment and retention of staff are the primary limiting factors in operating special care beds. The complex needs of children require high staffing ratios, as there is a need for at least one staff member per child throughout the day, in addition to supervisory staff, and the units must be covered on a 24-7 basis, albeit with reduced staffing at night. That means seven individuals for every one young person.”
“As a country and nation, we need to acknowledge the importance of early years education. We also need to have a pathway forward. That is the purpose of phase 2 of the action plan. In that regard, there are 50 consultation processes taking place on the ground across the country at the moment. Some have started, more are ongoing. I invite as many people as possible, including parents, workers and providers, to engage in that forum.”
“I acknowledge the great work happening in the Deputy's constituency. It was a pleasure to visit Ballymun and see at first hand the excellent work that happens there. I am aware of the Deputy's personal commitment to advancing early years childcare provision in his constituency. Specifically, it is hugely important that we support providers and parents from an affordability point of view, but that we also support staff. I acknowledge that the €45 million is subject to an independent joint labour committee. I do not interfere with that, but the Government makes the money available. It is for the purpose of supporting staff and that is how it will be used. However, the decision around it is independent of the Department and I respect that. All voices are important in this area.”
“The Deputy will be aware there has been a strong consultation element to that, working through the issues and the perspectives of parents, providers and staff, to bring us to the point where we are delivering on all three aspects, the affordability for parents, a sufficiency of places and support for staff. We need to make progress quickly, but the actions we take in this second phase of the action plan will have to be sustainable and underpinned by the support and public consultation on the three different elements.”
“I absolutely agree with the Deputy. There is, in many respects, a balancing act in this. We have to ensure it is affordable for parents and that enough places are made available. We spoke earlier about State-led initiatives and the building blocks extension, which will be launched this week for providers. We also have to ensure that enough staff are available and that we are supporting them. I acknowledge that €45 million was put on the table last year to support staff and another €45 million is being put on the table this year to do so. We are currently working on phase 2 of the action plan for early years.”
“Specifically on the national childcare scheme, phase 1 of Shaping the Future commits to an increase to the lower or base income threshold of the income-assessed subsidy from €26,000 to €34,000 to ensure families with incomes below the relative income poverty line receive the maximum subsidies, a measure that came out of the recent budget; an increase to the upper income threshold of the income-assessed subsidy from €60,000 to €68,000 to extend income-assessed subsidies to more families - again, that came from the budget and we were happy to secure it; and an increase to the multiple-child deduction component of the income-assessed subsidy for families with two children under the age of 15 from €4,300 to €5,500, and for families with three or more children under the age of 15 from €8,600 to €11,000.”
“The fee freeze and maximum fee caps required for core funding have been key to the progress in recent years in making early learning and care and school-age childcare services more affordable. The phase 1 report of Shaping the Future sets out actions that will be carried out in 2026 using existing policy tools. The 2026 actions on affordability will include further reductions in some of the highest fees paid by parents by lowering the maximum fees core funding partner services can charge. In addition, from autumn 2026 we will reduce fees for lower income families through the national childcare scheme.”
“I have always been clear in communicating that the €200 per month commitment over the lifetime of the Government is hugely important. While the phase 1 report of Shaping the Future: Early Years Action Plan sets out the next steps towards this long-term ambition, I have not waited until now to take action. In September 2025, maximum fee caps were extended to all partner services in core funding. Budget 2026 also enables core funding to continue to support fee-control measures. It will ensure fees remain at 2021 levels for a majority of providers. A central objective of Shaping the Future is to reduce parental fees to an upper limit of €200 per month over the lifetime of the Government. However, this objective cannot be achieved through the national childcare scheme alone.”
“We hope that framework document will be available before the Dáil recess or in the coming months. In the meantime, staffing is an issue. There is a new training college for special care. Three step-down facilities are being put in place, two before the end of the year and one in January. Thirty-eight new residential places were opened last year, with a further 47 due to be opened this year. By the start of May, our reliance on special emergency accommodation will have reduced by 50%. We need to and will do more to reduce that reliance.”
“The disputed age has been flagged by Tusla. It is a concern of the agency. In relation to these three individuals, it will be worked through with the Department of justice. It is important that if there is any question over appropriate age, these young people are not placed with other young people who are underage. In terms of the reliance on special emergency accommodation, I want to be clear that we are doing all that we can to move away from that, to minimise it and, eventually, to eradicate a reliance on special emergency accommodation. Last year, there were 170 special emergency accommodations. This year, there are 70. We are working to bring that down even further. There will be for the first time a new policy on children in State care. That has been subject to public consultation.”