Far too often, children miss out on quality Early Childhood Education and Care (ECEC). Cultural barriers and a lack of information limit enrolment, while some families simply cannot afford it. The data show that vulnerable children are most affected, with substantial socio-economic gaps in ECEC participation in most countries, especially for children aged 0 to 2. In eight out of 28 OECD countries, these gaps have widened for children aged 3 to 5. What is more, disadvantaged children often receive lower-quality ECEC services. Evidence suggests that overall quality is only improving in a handful of cases. Many OECD countries can, and should, do better.
The importance of ECEC cannot be overstated. It is a cost-effective way to close achievement gaps before they widen and become entrenched. Unlike interventions aimed at addressing inequalities later in life, high-quality ECEC promotes the development of foundational skills like language, literacy and numeracy, essential for later success. Early years policies, if co-ordinated and evidence-based, can reduce the need for expensive remedial education and social services in the future.
In the past 20 years, countries have increased funding and improved ECEC policies. Enrolment rates are up, and many countries have adopted research-informed curriculums that build on play to foster child development and well-being. Children who attend high-quality ECEC are more likely to succeed in school, graduate and secure good jobs. They are less likely to engage in criminal activities or rely on social welfare. The return on investment is substantial. For every dollar, yen or euro spent on high-quality ECEC, society saves much more in future costs – and supports happy childhoods.
Yet, despite these benefits, many children are left behind. OECD data show large socio-economic gaps in maths scores for 15-year-olds. Only two OECD countries narrowed these gaps between 2015 and 2022. This is, at least partly, a hangover from ECEC as, in some countries, the socio-economic gaps in early years participation are particularly stark. Children from low-income families are less likely to attend ECEC programmes. Even when they do, the quality of services they receive is often inferior. This perpetuates a cycle of disadvantage that is hard and costly to break.
The reasons for these gaps in enrolment and quality are complex. In some countries, ECEC is prohibitively expensive. In others, there are not enough high-quality programmes available. Cultural factors also play a role. In some communities, there is a lack of awareness about the importance of ECEC. In others, the sector is fragmented. Across the OECD, public investment in early years education and care is low compared to other levels of education, and budget constraints are tight. Staff shortages and lack of quality training are often an issue.
The OECD has responded to this situation by creating a policy roadmap, outlined in this report Reducing Inequalities by Investing in Early Childhood Education and Care. There are numerous factors to consider, but two stand out.
First, countries need to combine universal and targeted policy approaches, which reach everyone but are aimed at the most disadvantaged. This includes additional support for children living in poverty, with special needs, with language barriers or facing other challenges. Policymakers should focus on cost-effective policies like evidence-based curriculums, high-quality staff training and targeted funding allocations. Vulnerable children should also be supported with specialised staff and subsidies for low-income families.
Second, countries must develop a cross-sectoral approach. Fragmented early years services complicate access for families. Governments need integrated early education, health and social services with common goals to ensure investments support vulnerable children and have a lasting impact. The role of parents also cannot be ignored. ECEC programmes must work in partnership with parents, including giving them information and resources to support children's learning at home.
The stakes are high. At the moment, children are born with varying opportunities to develop and learn, leading to lifelong inequalities. As communities become increasingly diverse, new forms of mutual understanding and solidarity must emerge. Ensuring strong education pathways for all is crucial for building cohesive societies and fostering economic growth.
Governments should act now and take a more comprehensive approach to their early years policies to better support children and families, and give a real boost to those who need it the most. Investing in the early years is not just a moral imperative; it is an economic and social one. The cost of inaction is too high.
Andreas Schleicher,
Director for Education and Skills,
Special Advisor on Education Policy to the OECD Secretary-General
