COMMISSION STAFF WORKING DOCUMENT reviewing progress made in the implementation of the Council Recommendation (EU) 2021/1004 of 14 June 2021 establishing a European Child Guarantee Accompanying the document COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT, THE COUNCIL, THE EUROPEAN ECONOMIC AND SOCIAL COMMITTEE AND THE COMMITTEE OF THE REGIONS Breaking the cycle of child poverty - strengthening the European Child Guarantee
Date: 2026-05-06
Institutions: Directorate-General for Employment, Social Affairs and Inclusion, European Commission
Subjects: aid to disadvantaged groups, child, child protection, children's rights, marginalisation, poverty, social inequality, social integration, social rights, youth policy

EN 

  EN 

   EUROPEAN COMMISSION  Brussels, 6.5.2026  SWD(2026) 772 final  COMMISSION STAFF WORKING DOCUMENT reviewing progress made in the implementation of the Council Recommendation (EU) 2021/1004 of 14 June 2021 establishing a European Child Guarantee Accompanying the document COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT, THE COUNCIL, THE EUROPEAN ECONOMIC AND SOCIAL COMMITTEE AND THE COMMITTEE OF THE REGIONS Breaking the cycle of child poverty - strengthening the European Child Guarantee {COM(2026) 539 final}  
 
 
INTRODUCTION ....................................................................................................... 3 

1.  CONTEXT: CHILD POVERTY AND THE RIGHTS OF THE CHILD ....................... 5 

1.1.  Child poverty and its societal and economic impacts ....................... 6 
1.2.  Rights-based approach ........................................................................ 8 

2.  POLICY RESPONSES TO CHILD POVERTY ...................................................... 11 

2.1.  Addressing the root causes of child poverty .................................... 12 
2.1.2 
 Supporting the labour market integration of households ..... 12 
2.1.2  Child benefits and their efficiency ......................................... 13 
2.2.  Rolling out the European Child Guarantee .................................... 17 
2.2.1.  Child Guarantee Coordinators .............................................. 17 
2.2.3.  Monitoring frameworks ......................................................... 19 
2.2.4.  Biennial progress reports ...................................................... 21 
Implementation of ECG in candidate countries and potential 
2.2.5. 
candidate ............................................................................... 22 
2.3  EU funding ......................................................................................... 23 
2.3.1.  The European Social Fund+ ................................................. 23 
2.3.2.  The Recovery and Resilience Facility ................................... 26 
2.3.3.  The Social Climate Fund ....................................................... 26 
2.3.4.  The European Regional Development Fund (ERDF) .............. 26 
2.3.5.  Technical Support Instrument ............................................... 27 
2.3.6.  Erasmus + ............................................................................. 29 

3.  PROGRESS WITH ECG IMPLEMENTATION ................................................... 30 

3.1  Children in need ................................................................................ 30 
3.2  Early Childhood Education and Care (ECEC) .............................. 33 
3.3  Education for successful transition to adulthood ........................... 40 
3.4  School-based activities ....................................................................... 46 
3.5  School meals ....................................................................................... 50 
3.6  Healthcare .......................................................................................... 54 
3.7  Digital inclusion and safety ............................................................... 59 
3.8  Healthy nutrition ............................................................................... 62 
3.9  Adequate housing .............................................................................. 67 
3.9.1  Combatting homelessness ...................................................... 67 
Adequate accommodation...................................................... 70 
3.9.2 
3.9.3.  Alternative care of good quality ............................................ 74 
3.10  Access to justice ................................................................................. 77 
3.11  Outreach and awareness raising ...................................................... 79 
3.12  Involvement of stakeholders ............................................................. 80 

 
 
 
 
 
4.  STAKEHOLDERS’  VIEWS  ON  THE  EUROPEAN  CHILD  GUARANTEE  AND  ITS 
POSSIBLE STRENGTHENING ........................................................................... 82 

4.1  European Parliament ........................................................................ 82 
4.2  The Council ........................................................................................ 83 
4.3  Committee of the Regions ................................................................. 83 
4.4  European Economic and Social Committee .................................... 84 
4.5  Civil society ........................................................................................ 84 
4.6  Children .............................................................................................. 86 
4.6.1  Children’s suggestions and recommendations ...................... 87 
4.7  Results of the Call for Evidence ....................................................... 88 

5.  WAY FORWARD: NEEDS AND TOOLS TO STRENGTHEN ECG ...................... 91 

ANNEX I: THE EU AND NATIONAL TARGETS FOR CHILD POVERTY REDUCTION . 94 

ANNEX II: THE EU MONITORING FRAMEWORK ................................................. 95 

ANNEX 

III:  COUNTRY  PROFILES  ON  THE  STATE  OF  PLAY  WITH 
IMPLEMENTATION 
EUROPEAN  CHILD  GUARANTEE 
RECOMMENDATION ...................................................................................... 96 

THE 

OF 

2 

 
 
 
 
 
INTRODUCTION 

President  von  der  Leyen’s  Political  Guidelines  for  the  2024-–2029  European 
Commission  state  that  the  European  Child  Guarantee  should  be  strengthened  “to 
prevent and fight social exclusion through education, healthcare and other essential public 
services”. This commitment from the Political Guidelines was reflected in the Commission 
Work  Programme  2026,  which  includes  an  initiative  to  strengthen  the  European  Child 
Guarantee (ECG) through investments and reforms. This is closely related to addressing 
the  root  causes  of  poverty,  stepping  up  efforts  towards  attaining  the  poverty  reduction 
targets set in the European Pillar of Social Rights Action Plan, the implementation of the 
EU  Strategy  on  the  Rights  of  the  Child  and  the  roll-out  of  first-ever  EU  Anti-Poverty 
Strategy, which is being published along with the Communication on breaking the cycle 
of  child  poverty  -    strengthening  the  European  Child  Guarantee  and  the  proposal  for  a 
Council Recommendation on fighting housing exclusion.  

The  European  Child  Guarantee  is  a  key  tool  to  break  the  intergenerational 
transmission  of  disadvantage  and  is  one  of  the  flagship  deliverables  of  the  European 
Pillar of Social Rights Action Plan and the EU Strategy on the Rights of the Child. The 
Council Recommendation establishing a European Child Guarantee (2021) aims to combat 
and prevent social exclusion of children by ensuring their access to a set of key services. 
As regards the accession process, the Council recommendation also forms part of the EU 
acquis falling under chapter 19 “social policies and employment”. The ECG is targeted at 
children in need, who are defined as “persons under 18 years old who are at risk of poverty 
or social exclusion” (1). In line with the ECG Recommendation, children in need should 
be provided with effective and free access to high-quality early childhood education and 
care, education and school-based activities, at least one healthy meal each school day, and 
healthcare, as well as with effective access to healthy nutrition and adequate housing. By 
supporting access to these services, the ECG indirectly contributes to the reduction of the 
risk of poverty or social exclusion of children (2). In addition to providing guidance on the 
provision of key services to children in need, the ECG includes detailed guidance on the 
conditions that ought to be met for childcare, education, healthcare, nutrition and housing 
to  be  adequate,  inclusive  and  truly  accessible  (§ 7  to  10).  It  also  establishes  robust 
governance,  monitoring  and  reporting  mechanisms  (§ 11  and  12,  see  Section  3.3  for 
details). 

In  the  first  years  following  the  establishment  of  the  ECG,  several  Member  States 
undertook  significant  reforms  inspired  by  the  ECG.  However,  qualitative  and 
quantitative analysis of access to those services has shown that children in need remain, in 
general, less likely to use them than children living in households with a higher income.  
This  reflects  remaining  barriers  in  access,  such  as  hidden  costs,  low  awareness  (and 
insufficient outreach) and shortages of supply.  

(1)  Within this target group, special attention should be paid to homeless children or children experiencing 
severe housing deprivation, children with disabilities, children with mental health issues, children with 
a migrant background or minority ethnic origin, particularly Roma, children in alternative, especially 
institutional, care, and children in precarious family situations. 

(2)  The possible beneficial impacts are only indirect and thus weaker than measures which directly lead to 
higher family incomes. Therefore, the changes in the incidence of the risk of poverty or social exclusion 
among children should not be used to assess progress and efficiency of ECG implementation.   

3 

 
 
 
 
 
This Staff Working Document (SWD) investigates details of those gaps. It starts with 
sketching  the  socio-economic  context  in  which  European  Child  Guarantee  operates, 
discussing recent trends in child poverty (shown at the Member State level in Annex I), 
the intergenerational transmission of disadvantage and the rights of the child agenda. The 
policy responses to child poverty are discussed in Section 2, starting with those addressing 
the lack of adequate resources of parents, and then moving to the ECG, which is meant to 
ensure more equal opportunities and offset the impact of poverty on children. The various 
types  of  EU  financial  support  for  actions  tackling  child  poverty  are  also  presented. 
Section 3, which reflects the structure of the ECG Recommendation, looks at progress with 
the implementation of the European Child Guarantee. It draws from the biennial progress 
reports by the Member States (3), indicators included in the monitoring framework for the 
European Child Guarantee, agreed and updated by the Social Protection Committee (see 
Annex  II  for  an  overview),  ad-hoc  information  collected  from  Child  Guarantee 
Coordinators and academic research. This EU-level analysis is complemented by country 
profiles, which can be found in Annex III. Section 4 takes stock of stakeholders’ views on 
ECG and presents results of public consultations, including those which were conducted 
among children. Section 5 summarizes the results and presents a possible way forward. 
This completes the analysis and fulfils the mandate given to the Commission in § 12 (e) of 
the ECG Recommendation, to  “review the progress made in  the implementation  of this 
Recommendation and report to the Council by five years after its adoption”. This SWD 
serves also as evidence base for the Commission Communication on breaking the cycle of 
child poverty – strengthening the European Child Guarantee.  

(3)  § 11(f)  of  the  ECG  Recommendation  guides  the  Member  States  to  report  every  two  years  to  the 
Commission  on  the  progress  in  implementing  this  Recommendation,  in  line  with  the  national  action 
plan. All Member States have submitted their first progress reports, which were due by 15 March 2024. 
Until 17 April 2026, the second progress reports (due by 15 March 2026) were received from Austria, 
Belgium, Cyprus, Estonia, Greece, Italy, Latvia, Luxembourg, Netherlands, Poland, Romania, Slovakia, 
Slovenia, and Sweden. All action plans and progress reports are available at https://employment-social-
affairs.ec.europa.eu/policies-and-activities/social-protection-social-inclusion/addressing-poverty-and-
supporting-social-inclusion/investing-children/european-child-guarantee/national-action-plans-and-
progress-reports_en. 

4 

 
 
 
 
 
1.  CONTEXT: CHILD POVERTY AND THE RIGHTS OF THE CHILD 

Besides  aiming  to  mitigate  the  impact  of  poverty  experienced  by  disadvantaged 
children, the ECG is also a key policy instrument for safeguarding the rights of the 
child in the EU.  The two aspects  – rights  of the child and various forms  of social and 
economic disadvantage – are closely interlinked. Children experiencing poverty are more 
likely to have their other rights compromised. This section presents key information on the 
determinants  and  consequences  of  child  poverty,  as  well  as  on  the  main  aspects  of  the 
realisation of the rights of the child.  

Definitions and indicators 

The concept of being at risk of poverty or social exclusion abbreviated as AROPE, refers to persons 
who are either at risk of poverty, or severely materially and socially deprived or live in a household 
with  a  very  low  work  intensity.  The  at-risk-of-poverty  (AROP)  rate,  also  referred  to  as  monetary 
poverty, reflects the share of people who live in households whose equivalised disposable income (after 
social transfers) is below 60% of the corresponding national median. Since the total disposable income is 
calculated  at  the  household  level,  equivalisation  factors  allow  to  account  for  household  size  and 
composition, specifically accounting for the presence of children. Severe material and social deprivation 
(SMSD) is defined as the enforced lack of necessary essential goods and services (e.g. being able to afford 
a  meal  with  meat,  chicken,  fish  or  vegetarian  equivalent  every  second  day,  or  having  internet 
connection).  The SMSD rate denotes the proportion of the population experiencing a lack of at least seven 
out of 13 items (4). When this 13-item indicator is broken down for children, it provides information on 
the proportion of children living in a severe deprivation context (5). Lastly, the very low work intensity 
(VLWI) component is defined as the share of persons living in households where working age adults (6) 
worked a working time equal or less than 20 % of their total potential during the previous 12 months. 
Effectively,  the  three  components  cover  multiple  facets  of  poverty  –  income  (monetary)  poverty, 
deprivation from basic goods and services and lack of labour market participation.  The risk of poverty or 
social  exclusion  among  children  (AROPE)  is  used  as  a  proxy  for  child  poverty  throughout  this  Staff 
Working Document. 

The information on the risk of poverty or social exclusion is collected through the EU Statistics on 
Income  and  Living  Conditions  (EU-SILC).    EU-SILC  is  a  household  and  individual  data  collection 
whose output is harmonised as it is regulated by legislations. Around 90% of the data collection is made 
up of annual variables. The rest are either modules that are collected every three or six years or modules 
conducted ad-hoc to reply to policy needs.  Information to monitor the situation of vulnerable children is 
collected either annually or every three years  in a dedicated module on children (and feed into the EU 
monitoring framework for European Child Guarantee, see Section 3.3.3).  

(4)  For a full list of items used to ascertain severe material and social deprivation, and how they are used to 
https://ec.europa.eu/eurostat/statistics-

measure 
explained/index.php?title=Glossary:Severe_material_and_social_deprivation_rate_(SMSD).  

deprivation 

children 

among 

please 

see 

(5)  Note that a child specific deprivation indicator also exists. It refers to the percentage of children below 
16  who  suffer  from  the  enforced  lack  of  at  least  three  items  out  of  17  (unweighted)  essential  items, 
ranging from access to fresh fruits and vegetables daily to leisure activities. Unlike the annual SMSD 
covering the overall population, data for this child specific indicator are collected as part of the three-
yearly module on children. More information can be found here: https://ec.europa.eu/eurostat/statistics-
explained/index.php?title=Children_-_material_deprivation#:~:text=of%20national%20data.-
,Context,Household:%20Car.  

(6)  The count of the household members of the working age does not include students aged 18-24 and people 
who are retired or who receive any pension (except survivors’ pension), as well as people in the age 
bracket 60-64 who are inactive and live in a household where the main income is pension. 

5 

 
 
 
 
The trends in incidence of child poverty in the EU are concerning. While the number 
of children (persons under 18 years of age) across the EU who are at risk of poverty or 
social exclusion (AROPE, see box for discussion of statistical definitions and indicators) 
is lower today than it used to be ten years ago, it is also broadly similar to that observed 
in 2019, which serves as the baseline year for EU poverty reduction targets (7). While the 
overall number of children AROPE has slightly decreased in the most recent years – 
from 19.8 million in 2022 to 19.2 million in 2025 – it has remained broadly stable since 
2019, thus not showing progress towards the 2030 EU poverty reduction sub-target 
covering children. Moreover, since 2019, the total number of people at risk of poverty or 
social exclusion in the EU has decreased by approximately 3.5 million. This implies an 
increase in the relative incidence of child poverty and a shift of vulnerability towards the 
youngest population.   

1.1. Child poverty and its societal and economic impacts 

Household income is the main determinant of the risk of poverty or social exclusion 
among  children.  Poverty  among  children  stems  from  barriers  to  labour  market 
participation of their parents and from insufficient income support. Workers with children 
record lower employment rates, and, in 18 out of the 27 EU Member States they are more 
likely to experience in-work poverty than workers without children (2024 data) (8). These 
lower employment prospects and higher rates of in-work poverty are in many cases directly 
linked  to  the  presence  of  children  in  the  household.  First,  a  lack  of  adequate  childcare 
arrangements leads parents – usually mothers – to withdraw, at least temporarily, from the 
labour market. Second, for a given level of labour market participation, a higher number 
of  persons  in  the  household  (including  children)  diminishes  the  equivalised  household 
income. The households headed by parents with a low level of education (which is usually 
associated with lower earnings) can serve as an illustration of this mechanism. In the EU 
in 2024, more than three in five children with parents with a low educational attainment 
(61.2%) were at risk of poverty or social exclusion (9). This share falls to roughly one in 
nine (11%) for households headed by highly educated parents (10). 

Children growing up in households at risk of poverty or social exclusion are less likely 
to perform well in education and are exposed to greater health risks. They are also 
more prone to be affected by discrimination in fundamental areas of life. In childhood, this 
affects predominantly education but in adult life disadvantage stretches also to access to 
employment,  housing  and  healthcare.  This  hinders  their  chances  to  realise  their  full 
potential and has a negative effect on equality of opportunities, making them more likely 
to experience poverty themselves later in life.  

(7) Source: Eurostat (online data code ilc_pecs01).  

(8) Source: Eurostat (online data code ilc_iw02). 

(9) Educational attainment level is defined in line with the International Standard Classification of Education 
(ISCED 2011). Low educational attainment (ISCED 0–2) covers less than primary, primary, and lower 
secondary education. Medium educational attainment (ISCED 3-4) includes upper secondary and post-
secondary  non-tertiary  education,  while  high  level  (ISCED  5–8)  covers  tertiary  education,  including 
university degrees and other higher education qualifications. See https://ec.europa.eu/eurostat/statistics-
explained/index.php?title=Glossary:Educational_attainment_level.  

(10) Source: Eurostat (online data code ilc_peps60n). 

6 

 
 
 
Intergenerational transmission of poverty is still strong, especially in some Member 
States. In 2023, 20% of adults aged 25 to 59, who lived in in a household with financial 
difficulties when they were around age 14, were at risk of poverty, compared to 12.4% of 
those  who  grew  up  in  better  financial  conditions (see  Graph  1).  Bulgaria  and  Romania 
recorded the highest at-risk-of-poverty rates (respectively 48.1% and 42.1%) for those who 
considered their household's financial situation to be bad during their childhood, and also 
the largest differences in the respective risk faced by persons from better-off households. 
In Denmark and Slovenia, the at-risk-of-poverty rate in adulthood was similar regardless 
of the financial situation in childhood.  

Graph 1: Incidence of poverty (in %) among persons aged 25 to 59 years, by financial situation of 
their households when they were around 14 years old   

50

40

30

20

10

0

EU BE BG CZ DK DE EE IE EL ES FR HR IT CY LV LT LU HU MT NL AT PL PT RO SI SK FI SE

Good

Bad

Note: Figures for 2023. Data not available for Germany and low reliability for Czechia and Poland. 
Source:  Eurostat (online  data  code  ilc_igtp04).  For  more  information  please  see:  Intergenerational 
transmission of disadvantages - statistics, EU-SILC 2023, European Commission. 

The resources and opportunities available in a child’s formative years shape future 
life prospects. As an illustration, 13.0% of people aged 25 to 59 years in the EU who had 
less  than  primary,  primary,  or  lower  secondary  education  (ISCED  levels  0-2)  reported 
being  unable  to  afford  basic  school  needs  when  they  were  around  14  years  old.  This 
percentage  decreases  with  higher  educational  attainment:  3.6%  for  those  with  upper 
secondary or post-secondary non-tertiary education (ISCED levels 3 and 4), and just 1.5% 
for  those  with  tertiary  education  (ISCED  levels  5-8).  The  latest  PISA  results  further 
demonstrate the close links between children’s disadvantages and educational outcomes: 
28.8%  of  children  with  low  socio-economic  status  underachieve  in  reading,  maths  and 
science, compared to just 4.7% of their advantaged peers, a nearly sixfold difference. This 
early academic struggle translates into long-term inequality in educational attainment. In 
2023,  only  26.4%  of  EU  adults  with  tertiary  education  had  parents  with  low  education 
levels, while 34.1% had parents with tertiary qualifications themselves. This suggests that 
upward mobility remains limited for those starting from disadvantaged backgrounds, with 
education often reproducing—rather than mitigating—existing inequalities, feeding into 
persistent labour market disparities and social exclusion. 

Failing to address the intergenerational transmission of poverty carries a substantial 
economic and social cost. The OECD estimates that child disadvantages alone cost EU 
economies approximately 3.4% of GDP, a figure that accounts for their negative impact 
on employment and health outcomes in the long run. These costs are avoidable. Investing 

7 

 
 
 
in early childhood education, and targeted support for low-income families can disrupt the 
transmission of poverty before it becomes entrenched (11). 

Ensuring access to services supporting child development plays a crucial role to offset 
such disadvantage and foster equal opportunities. Early childhood education and care 
(ECEC),  schooling,  extracurricular  activities,  school  meals  and  healthy  nutrition, 
healthcare and housing are among those services. Expenditure on such services is a key 
investment yielding high rates of returns. Every euro spent on health-related programmes 
for children brings a return of three euros, while investments in education deliver up to 
nearly  seven  euros  back  for  each  euro  invested (12).  Such  investments  not  only  propel 
children towards a healthier and more prosperous adulthood: over the medium to long term, 
they revitalise our economies, fostering social cohesion and reducing poverty. Embracing 
social investment in children enhances their future prospects, creating a virtuous cycle that 
benefits the entire society. 

However, participation gaps remain between children AROPE and their better-off 
peers. This is largely driven by the insufficient capacity of public services for children and 
by hidden costs linked to their use. Faced with short supply, which is often reflected by 
long waiting lines, children at risk of poverty or social exclusion live usually in households 
less  able  to  revert  to  fee-charging  private  service  providers,  which  results  in  children 
participating less than those from high- and medium- income households. Moreover, the 
hidden  costs  of  participation  in  free  and  universal  services  matter  more  for  children 
AROPE than the rest. Early childhood education and care is one example. In 2024, only 
23.6% of children under the age of 3 at risk of poverty or social exclusion were enrolled 
in  ECEC,  compared  to  43.9%  of  their  peers  not  at  risk (13).  Alarmingly,  this  gap  has 
widened in most EU Member States and occurs also in other areas, ranging from education 
to nutrition, healthcare and housing, as underlined by the monitoring framework for the 
European Child Guarantee (14).  

1.2. Rights-based approach 

Strengthening the European Child Guarantee is firmly rooted in a child-rights-based 
approach and takes place in synergy with the implementation of the EU Strategy on the 
Rights of the Child, which the European Commission adopted together with the proposal 
for  the  Council  Recommendation  establishing  the  ECG.  Under  the  Strategy,  the 
Commission aims to empower children to be active citizens and members of democratic 
societies, promotes socio-economic inclusion, health and education of children (for which 
the ECG is the key instrument), helps children grow up free from violence, supports justice 
systems  that uphold  the children’s rights  and needs of children  and aims  to  ensure that 
children can safely navigate and benefit from the digital environment. 

Ensuring children’s participation in making decisions that affect them is key for the 
implementation and strengthening of ECG. At EU level, this is done through the EU 

(11)  Clarke, C. et al. (2022), “The economic costs of childhood socio-economic disadvantage in European 
OECD  countries”,  OECD  Papers  on  Well-being  and  Inequalities,  No.  9,  OECD  Publishing,  Paris, 
https://doi.org/10.1787/8c0c66b9-en. 

(12)  Report on the effectiveness of child benefits in the EU by Rand Europe, forthcoming. 

(13) Source: Eurostat (online data codeilc_caindform25b). 

(14)  https://webgate.ec.europa.eu/circabc-ewpp/ui/group/bab664d7-1188-47b2-9fa6-
869902320ba2/library/1263d2f9-f558-4e3f-a384-9e24da0883d1/details.  

8 

 
 
 
Children’s Participation Platform (15), which allows children to express their opinions in 
online surveys, focus groups and individual interviews, as well as participate in various 
deliberative formats. At the national level, several Member States made a significant effort 
to  meaningfully  consult  children.  For  example,  Italy  established  the  Youth  Advisory 
Board, meant to represent children’s opinions at all stages of the ECG roll-out. In Sweden, 
children have been consulted through the Living Conditions Survey of Children, which 
was facilitated by the Ombudsman for Children and gathered views on ECG from over 30 
thousand respondents. In Slovenia, 25 consultations are planned until 2029, starting on the 
topic of access to education and ECEC. 

The universally recognized rights of the child (16) serve as basis for several EU policy 
initiatives  aimed  to  promote  socio-economic  inclusion,  health  and  education  of  all 
children, with particular emphasis on vulnerable ones. Besides ECG, those include the 
European Strategy for the Rights of Persons with Disabilities (17) which is being enhanced 
with an initiative that is published together with the Communication on breaking the cycle 
of child poverty - strengthening the European Child Guarantee. Other guiding documents 
include  the  revised  Barcelona  targets  on  participation  in  early  childhood  education  and 
care, which calls upon the Member States to close the participation gap between children 
at  risk  of  poverty  or  social  exclusion,  and  the  overall  population  of  children (18),  the 
“Pathways to School Success” initiative (19), and others.  

The  protection  of  children’s  rights  is  also  the  guiding  principle  as  regards  the 
prevention of violence and organisation of justice systems.  Each year across the EU 
children become involved in judicial proceedings, either directly, as a defendant, victim, 
witness or indirectly when decisions have a considerable impact on their lives. This can be 
the  case  in  divorce  or  custody  proceedings  or  in  migration  and  status  determination 
procedures. In all cases, children should feel comfortable and safe to participate effectively 
in the proceedings and judicial systems in Europe need to be adapted to the specific needs 
of children, including those with disabilities or special needs, and must respect their rights. 
Children can be also perpetrators of violence – physical but also increasingly cyber, i.e. in 
online  settings,  including  while  or  because  of  being  victimised  themselves.  Their 
vulnerability  to  exploitation  and  recruitment  into  crime  as  well  as  to  victimisation  is 
frequently  exacerbated  by  socio-economic  disadvantage  and  exclusion.  Experiencing 
violence in childhood is likely to have lifelong consequences. As stated in the EU Strategy 
on the Rights of the Child, enforcing zero tolerance for violence against children requires 
closing the gap between international standards, political commitments and action, and to 
mobilise all relevant actors across the society. The EU has now very strong legislation to 
protect  children  from  violence,  such  as  on  victim’s  rights,  child  sexual  abuse  and 

(15)  See Section 5.6. 

(16)  The UN Convention on the Rights of the Child (UNCRC) has been ratified by all Member States of the 
EU. Globally, 196 states – all members of the UN except United States of America – are parties to the 
UNCRC,  making 
instrument. 
the  most 
https://www.unicef.org/child-rights-convention/convention-text.  

international  human 

ratified 

rights 

law 

it 

(17)  Communication from the Commission to the European Parliament, the Council, the European Economic 
and Social Committee and the Committee of the Regions on Union of Equality: Strategy for the Rights 
of Persons with Disabilities 2021-2030  

(18)  Council Recommendation of 8 December 2022 on early childhood education and care: the Barcelona 

targets for 2030.  

(19)  Council  Recommendation  of  28  November  2022  on  Pathways  to  School  Success  and  replacing  the 

Council Recommendation of 28 June 2011 on policies to reduce early school leaving.  

9 

 
 
 
trafficking in human beings. Specific EU actions, such as the European strategy for a Better 
Internet for Kids or the Digital Services Act, are intended to ensure that children can safely 
navigate the digital environment and harness its opportunities. However, the constant and 
rapid  technological  changes  in  this  domain  –  most  recently,  the  advent  of  artificial 
intelligence allowing the creation of ‘deep fake’ images and movies – call for respective 
regulatory adjustments (20).  

By  issuing  a  Recommendation  on  developing  and  strengthening  integrated  child 
protection  systems  in  the  best  interests  of  the  child,  the  Commission  consolidates 
different strands of action to protect children from violence and to ensure that they receive 
the support they need to promote their rehabilitation where they are in conflict with the 
law. The Commission Recommendation helps Member States to develop and strengthen 
their child protection systems in line with children’s needs and in their best interests. It 
encourages coordination among authorities at different levels, professionals across sectors 
and international and civil society organisations. All these child protection actors need to 
work  together  to  protect  children  from  any  form  of  violence  (physical,  and  mental, 
including in the digital world) in a coherent and systemic manner. Families, communities 
and children themselves also have a key role to play too. 

(20)  See Section 4.7. 

10 

 
 
 
 
 
2.  POLICY RESPONSES TO CHILD POVERTY  

For more than a decade, the EU has been providing guidance in the domain of social 
policies to tackle child poverty. The 2013 Commission Recommendation on Investing in 
Children (21) called on Member States to develop integrated approaches to improving child 
wellbeing.  It  rests  on  three  pillars:  access  to  resources,  access  to  quality  services  and 
children’s right to participate. The access to resources is to be achieved through supporting 
parents’ participation in the labour market as well as providing adequate living standards 
through a combination of adequate, coherent and efficient in-cash and in-kind benefits.  

At the Gothenburg Summit in 2017, the European Parliament, the Council and the 
Commission proclaimed the European Pillar of Social Rights.  The Pillar sets out 20 
principles  that  guide  the  EU  towards  strong  social  standards  and  a  society  that  is  fair, 
inclusive and offers equal opportunities. Principle 11 of the Pillar states that children have 
the right to affordable early childhood education and care of good quality, and to protection 
from poverty. It also underlines that children from disadvantaged backgrounds have the 
right to specific measures to enhance equal opportunities. The main EU policy initiatives 
to  implementing  Principle  11  have  been  the  Strategy  on  the  Rights  of  the  Child,  the 
European  Child  Guarantee  and  the  Council  Recommendation  on  the  revision  of  the 
Barcelona targets on early childhood education and care. 

The EU has set as a poverty reduction target for 2030 to reduce the number of persons 
at risk of poverty or social exclusion by at least 15 million (compared to the 2019 level), 
out of whom at least 5 million should be children. This complementary target corresponds 
to  a  reduction  by  26.1%  from  the  2019  level  of 19.1  million  children  AROPE  (22).  All 
Member States have set their national poverty reduction targets to contribute to the general 
EU  poverty  reduction  target,  while  21  Member  States  set  also  child  poverty  reduction 
targets. However, as shown in Graph 2, some of those targets are low or even very low 
when  compared  to  the  number  of  children  AROPE  in  2019.  Consequently,  the  sum  of 
national targets (2.9 million children) falls short of the EU’s 5 million ambition. For more 
information on child poverty reduction targets see Annex I. 

The progress toward achievement of the national child poverty reduction targets has 
been limited. Only Ireland, Cyprus and Sweden have reached their targets, but those were 
relatively low. Additional efforts are needed in all Member States, especially those where 
the  number  of  children  AROPE  increased  between  2019  and  2025 (Estonia,  France, 
Germany, Greece, Ireland and Sweden) (23). Incidence of child poverty varies throughout 
the  EU  from  less  than  13%  in  Slovenia  and  Netherlands  to  more  than  30%  in  Spain, 
Bulgaria, Romania and outermost regions (24). With Greece, those are the Member States 
in which child-specific material deprivation is also the highest. In the EU at large, children 
remain more at risk of poverty and social exclusion than adults. In 2025, 24.3% of children 
were AROPE, compared to 20.9% of the overall population.  

(21)  Commission  Recommendation  of  20  February  2013  Investing  in  children:  breaking  the  cycle  of 

disadvantage  

(22)  Source: Eurostat (online data code ilc_pecs01). 

(23) No 2025 data available for Austria, Luxembourg, Malta, and Slovakia.   

(24) The absolute maxima are recorded in Mayotte (80%) and French Guyana (60%).  

11 

 
 
 
Graph 2: The national child poverty reduction targets expressed as percentages of the number (or 
share)  of  children  at  risk of  poverty  or  social  exclusion  in  2019  (baseline  year  for  the  poverty 
reduction target) 

50%

45%

40%

35%

30%

25%

20%

15%

10%

5%

0%

EU BE BG CZ DK DE EE IE EL ES FR HR IT CY LV LT LU HU MT NL AT PL PT RO SI SK FI SE

Target set at or above the level of EU target

Target set below  the level of EU target

No target set

Note: Belgium, Bulgaria, Czechia, Germany, Estonia, Ireland, Spain, France, Croatia, Cyprus, Luxembourg, 
Austria, Poland, Portugal, Romania, Slovenia, Slovakia, Finland, and Sweden set their targets in  absolute 
numbers, while Greece and Malta expressed them as percentage points referred to their child AROPE rates. 
Source: DG EMPL computation based on Eurostat (online data code ilc_pecs01), European Commission. 

2.1. Addressing the root causes of child poverty 

2.1.2 

 Supporting the labour market integration of households  

Supporting  labour  market  integration  of  households  is  essential  to  combat  child 
poverty. Several EU initiatives support the creation of quality jobs, thereby contributing 
to  addressing  child  poverty.  The  Work-Life  Balance  Directive  provides  for  the  right  to 
family leaves (paternity and parental leave) and the right to request flexible working time 
arrangements for working parents, allowing them to better reconcile childcare and work 
commitments.  The  Directive  on  adequate  minimum  wages  addresses  in-work  poverty, 
including in households with children. In addition, the Quality Jobs Roadmap prepares the 
ground  for  further  improvements  in  job  quality,  including  for  parents.  Meanwhile,  the 
Council Recommendation on adequate minimum income ensuring active inclusion fosters 
the labour market integration of those who can work, including parents, while promoting 
adequate income support, especially for those who cannot. The EU Anti-Poverty Strategy 
aims  to  step  up  the  fight  against  poverty  and  further  empower  the  working-age  people 
excluded  from  the  labour  market  to  secure  stable  jobs,  notably  through  individualised 
support.  

Further  employment  increases  and  policy  reforms  would  translate  into  significant 
declines in child poverty. Around 1.7 million children could be lifted out of poverty if 
employment rates were to reach national targets set by Member States in the context of the 
employment  headline  target  established  in  the  European  Pillar  of  Social  Rights  Action 
Plan. Research scenarios foresee a decline in the number of children AROPE by around 5 
million and by up to around 14 million in case of an acceleration of reforms (25). 

(25)  According  to  simulations  conducted  by  the  Joint  Research  Centre,  the  number  of  children  at  risk  of 
poverty (AROPE) would decline by around 5 million  at EU27 level in a reform scenario combining 
i) increases in the minimum wage to 60% of the national median wage, ii) reaching the 2030 national 
employment rate targets, iii) increasing the coverage of minimum income schemes by 10 percentage 
points (and assuming a 100% take-up rate) and iv) increasing the adequacy of minimum income schemes 

12 

 
 
 
 
 
2.1.2  Child benefits and their efficiency 

Social transfers are essential to curb poverty.  On average in the EU, they contribute to 
reducing  child  monetary  poverty  by  around  42%  (26).  However,  significant  country 
variations  can  be  observed.  Finland  achieved  the  highest  impact,  with  social  transfers 
reducing the incidence of monetary poverty among children by 60.1%. On the other end 
of  the  spectrum,  Spain  and  Romania  exhibited  the  lowest  impact  at  20.2%  and  18.1% 
respectively.  Examining  changes  since  2019,  Hungary  displayed  the  most  significant 
change,  i.e.  a  decrease  by  15.3  pp.,  down  to  31.2%  in  2024  (27).  Conversely,  Italy 
experienced an increase  by 15.9 pp., up to  42.1%. Such marked heterogeneity suggests 
scope for further upward convergence (see Graph 3).   

Graph 3: Impact (%) of social transfers (excluding pensions) on child poverty reduction (<18) in 
2024, compared to 2019 

70

60

50

40

30

20

10

0

EU BE BG CZ DK DE EE IE EL ES FR HR IT CY LV LT LU HU MT NL AT PL PT RO SI SK FI SE

2024

2019

Notes: break in time series for Hungary, Ireland and Belgium in 2019, break in time series for Croatia in 
2024, provisional data for Lithuania in 2024.  
Source: DG EMPL calculation based on EU SILC (ILC_LI02 and ILC_LI10) (ext. October 2025). 

Among social transfers, child benefits provide crucial income support to households 
with children, also supporting access to services. They refer to all benefits, in-cash or in-
kind – ranging from child allowances to tax reliefs and childcare support – that households 
with children receive to help rear them. Their overarching objective is to ensure adequate 

to  100%  of  the  national  at-risk-of-poverty  threshold.  The  decline  would  reach  around  14  million  if 
reaching  the  2030  national  employment  rate  targets  would  be  more  geared  towards  very-low  work 
intensity households and the coverage of minimum income benefits would reach all the households at-
risk-of-poverty. 

(26)  Pensions are not taken into account when calculating the impact of social transfers. The figure remained 
broadly stable between 2019 (42.9%) and 2024 (41.9%). In EU-SILC, the reference period of income 
refers to the calendar year before the year in which the survey took place. Hence, 2024 data are based 
on income from 2023. Source: Eurostat (online data codes ilc_li02, ilc_li10). 

(27) Note recent revisions of the Hungarian EU-SILC data, discussed i.a. in: Tatrai, A., Gabos, A., Huszár, 
Á., Krekó, J, and Tomka (2026). Revision of Hungarian EU-SILC Income Data in 2025 - A Comparative 
Analysis of Microdata Before and After the Revision. 

13 

 
 
 
 
living  standards  for  children,  thereby  preventing  material  deprivation  and  removing 
barriers to social inclusion and personal development (28). 

In-cash  child  benefits  make  a  significant  contribution  to  reducing  child  monetary 
poverty. On average in the EU, their poverty-reducing effect amounts to 10.3 pp. They 
also reduce the share of children deprived of at least one out of the 17 items of the child 
specific material  deprivation indicator by 3 pp.  (29). At the national level,  the estimated 
reduction in child monetary poverty (AROP rate) associated with in-cash benefits ranges 
from 4.6 pp. in Spain to 15.9 pp. in Germany. Country-specific estimates for the reduction 
in child material deprivation (of at least one item) associated with in-cash benefits range 
from  0.7  pp.  in  Malta  to  5.9  pp.  in  Belgium.  Variations  across  Member  States  reflect 
differences in the pre-transfer child poverty and material deprivation rates, as well as in 
the level of investment, and the adequacy and targeting of in-cash child benefits. 

All  EU  Member  States  provide  in-cash  child  benefits,  but  their  generosity  varies 
widely.  In  2021,  expenditure  on  in-cash  child  benefits  as  a  share  of  Gross  Domestic 
Product (GDP) spent on in-cash child benefits in 2021 ranged from 0.45% in Malta to 2.6% 
in Poland (EU-27 average: 1.5%). The estimated monetary value of in-cash benefits in EU 
Member States, expressed as a share of national median equivalised disposable income, 
ranged from 44% in Poland to 9.3% in Spain. In all EU Member States, the level of in-
cash child benefits as a proportion of disposable income is higher for AROP households 
than  for  non-AROP  households.  However,  this  does  not  necessarily  mean  that  AROP 
households receive more in absolute terms than non-AROP households (30). 

Child allowances are available in all Member States and reduce child poverty and 
material deprivation more than other types of cash benefits, such as birth benefits or 
child  tax  credits  (see  figure  below).  Although  all  EU  Member  States  provide  child 
allowances,  there  is  considerable  variation  in  their  targeting  and  adequacy.  In  most 
Member States, child allowances are the most significant form of in-cash support. Support 
levels  vary  widely,  ranging  from  the  highest  in  Poland  (33.7%  of  per  capita  median 
disposable income) to the lowest in Spain (2.4% of per capita median disposable income). 
On average across the EU-27, child allowances account for 74.8% of the effect of in-cash 
child  benefits  on  the  child  AROP  rate  and  66.9%  of  their  effect  on  child  material 
deprivation. 

In  certain  Member  States,  other  categories  of  in-cash  child  benefits  such  as  birth 
benefits and tax reliefs are associated with a sizable reduction in child poverty. In-
cash benefits associated with childbirth or adoption (offered by 24 EU Member States) and 
tax reliefs for families with children (available in 22 EU Member States) play on average 
a smaller role in reducing the child AROP rate than child allowances, accounting for 11.0% 
and 7.7% of the total  effect respectively. However, in specific countries, these types of 

(28)  All  the  remainder  of  this  subsection  is  based  on  a  forthcoming  study  conducted  by  Rand  on  the 

effectiveness of child benefits in the EU.  

(29)  For  more 

on 

information 

see 
https://ec.europa.eu/eurostat/statistics-explained/index.php?title=Glossary:Child_deprivation 
for 
https://ec.europa.eu/eurostat/statistics-
definitions 
explained/index.php?title=Children_-_material_deprivation for descriptive statistical analysis based on 
official data. 

methodology, 

deprivation 

indicator, 

specific 

child 

and 

and 

the 

(30)  This  finding  is  also  highlighted  by  Bornukova,  K.,  Hernandez,  A.,  &  Picos,  F.  (2024).  Investing  in 
children: The impact of EU tax and benefit systems on child poverty and inequality (No. 2/2024). JRC 
Working Papers on Taxation and Structural Reforms.  

14 

 
 
 
child benefits play a bigger role. For instance, in Slovakia, birth benefits reduce the child 
AROP rate by 5.1 pp. and in Hungary, the reduction associated with tax reliefs is 9.7 pp.  

Graph 4: Components of in-cash child benefits which decrease the child monetary poverty (AROP) 
rate, 2022 

Child tax
Child benefits
Child AROP rate before cash support to children

Non-child benefits
Birth benefits
Child AROP rate

)
p
p
(
e
c
n
e
r
e
f
f
i
d
d
n
a
)
5
(
e
t
a
r

P
O
R
A

40,00

30,00

20,00

10,00

0,00

-10,00

-20,00

K
D

I

Z S
C

I

F

E
B

E
E

T
M

L
N

V
L

U
H

L
P

Y
C

L
E

T
L

E
D

U
L

T
A

E
S

R
H

T
P

R
F

K
S

E

I

T

I

O
R

S
E

G
B

7
2
-
U
E

Notes:  Countries  are  ordered  by  the  child  AROP  rate.  Income  is  equivalised  using  the  modified  OECD 
equivalence scale. The poverty threshold is set at 60% of median equivalised disposable income.  
Source: Calculations using EUROMOD 2022 policies linked to 2022 EU-SILC data. 

Combining universal child allowances with targeted measures for vulnerable groups 
such as low-income families, single parents and children with disabilities is the most 
common  approach  in  the  EU,  followed  by  13  Member  States  (Belgium,  Germany, 
Ireland,  Italy,  Lithuania,  Luxembourg,  Malta,  Netherlands,  Poland,  Romania,  Sweden, 
Slovenia  and  Slovakia).  Member  States  which  provide  only  universal  child  benefits 
include  Austria,  Denmark,  Estonia,  Hungary,  Latvia,  and  Finland,  while  the  remaining 
eight Member States do not have a universal element of the cash child benefit systems. 
While universal child cash benefits provide broad coverage, the addition of means-tested 
supplements  enhances  targeting  efficiency  without  dramatically  increasing  fiscal  costs, 
consistent with previous literature findings (31). In addition to income-based targeting, 16 
Member States apply age-based eligibility rules, with benefits typically covering children 
up  to  and  including  age  17,  often  with  extensions  for  children  in  education  or  with 
disabilities.  Three  Member  States  and  one  region  apply  higher  age  limits,  while  eight 
countries  have  lower  general  age  limits  but  allow  for  extensions  in  cases  of  continued 
education or special needs. 

The potential of in-cash child benefits to reduce poverty and material deprivation is 
constrained when  eligible families do not claim the support.  Non-take-up can result 
from a range of factors, including lack of awareness or information, complex eligibility 

(31)  Mechelen, N. V., & Bradshaw, J.. ‘GINI DP 50: Child Poverty as a Government Priority: Child Benefit 
Packages for Working Families, 1992-2009’ (No. 50), 2012 AIAS, Amsterdam Institute for Advanced 
Labour Studies. 

15 

 
 
 
 
 
 
 
 
 
 
criteria or application processes, stigma associated with benefit receipt and administrative 
errors (32). While generous and universal benefits such as Poland’s  Rodzina 800+ show 
near-universal take-up, in other cases the non-take-up rates can be high, particularly for 
targeted benefits and those with lower adequacy. For example, estimates for the Working 
Family Payment in Ireland range from 85–87% to a rather low 47%, depending on the data 
and methodology used. In contrast, the non-take-up of other types of benefits, including 
in-kind, can also be substantial. For instance, in Germany, only 18% of eligible children 
accessed  the  Education  and  Participation  Package  in  2022,  with  low  awareness  and 
burdensome application processes cited as key barriers. In Ireland, approximately 31% of 
eligible families did not take up the means-tested Medical Card scheme, with stigma and 
uncertainty around eligibility contributing to underutilisation. These findings highlight the 
importance  of  simplifying  access  and  ensuring  adequate  benefit  levels  to  maximise  the 
reach and impact of child benefit policies (33). 

Policy swaps of in-cash child benefits 

‘Policy swaps’ show that universal systems are effective in reducing child monetary poverty due to 
their broad  coverage  and that  adding  a  targeted  component  increases  cost  efficiency.  The policy 
swap approach involves transposing the child benefit system of a 'donor' country (one with a demonstrably 
effective child support system) into a 'recipient' country to estimate the potential impact on child monetary 
poverty. Five recipient countries (Bulgaria, Spain, Italy, Hungary, Romania) were selected on the basis of 
their relatively high child AROP rates, while donor countries (Poland, Austria, Germany) were chosen for 
their effective in-cash child support systems and variety of instruments used.  In-cash child benefits in 
Poland  and  Germany  both  include  universal  child  allowances  (500+/800+  programme  in  Poland  and 
Kindergeld in Germany). Both are estimated to generate significant reductions in child monetary poverty 
in all recipient countries – although a relatively small effect is observed in Italy –, while the Austrian tax 
credit  system  shows  more  limited  or  even  negative  effectiveness.  This  performance  reflects  the  non-
refundable nature of part of the tax credits, which provides minimal benefit to low-income households 
with limited tax. 

Graph: Impact of policy swap reforms on child monetary poverty (AROP) rate, 2024 

10

5

0

-5

-10

-15

(a) PL universal benefit

(b) AT tax credits

(c) AT tax credits + universal benefit

(d) DE universal + means-tested benefits

BG

ES

HU

IT

RO

Note: Positive values reflect increases in child AROP rates comparing to existing child support systems 
Source: Calculations using EUROMOD 2024 

Furthermore,  based  on  a  cost-efficiency  analysis,  measuring  the  fiscal  cost  required  to  achieve  each 
percentage point reduction in child monetary poverty, a hybrid system like in Germany (Kindergeld is 

(32)  Van Lancker, W., Ghysels, J., & Cantillon, B.  ‘The impact of child benefits on single mother poverty: 
Exploring the role of targeting in 15 European countries’. International Journal of Social Welfare, 24(3), 
2015, pp.210-222. https://onlinelibrary.wiley.com/doi/full/10.1111/ijsw.12140 accessed 11 November 
2024.  

(33)  More references to estimates of non-take-up rates of both in-cash and in-kind benefits will be part of the 

upcoming study on the effectiveness of child benefits in the EU by Rand Europe. 

16 

 
 
 
 
combined  with  means-tested  supplements,  Kinderzuschlag)  is  found  to  be  more  cost  effective.  The 
German complete system consistently demonstrates superior cost-efficiency, requiring between 0.11% of 
GDP per percentage point reduction in Romania and 0.37% of GDP in Italy.  

Table: cost per one percentage point of child AROP reduction as % of GDP, 2024 

HU 

RO 

BG  

ES 

IT 

(a) PL universal benefit 

0.21% 

0.12% 

0.23% 

0.14% 

1.26% 

(b) AT tax credits 

0.94% 

0.56% 

(c) AT tax credits + universal 
benefit 
(d) DE universal + means-tested 
benefits 
(e) DE unemployment benefit 
supplement 

0.34% 

0.26% 

0.36% 

0.26% 

4.80% 

0.17% 

0.11% 

0.19% 

0.13% 

0.37% 

0.12% 

0.27% 

Note: Empty cells correspond to cases where a policy swap resulted in a near-zero child AROP change or 
in child AROP increase 
Source: Joint Research Centre calculations using EUROMOD 2024 

2.2. Rolling out the European Child Guarantee 

2.2.1.  Child Guarantee Coordinators 

The ECG Recommendation contains strong provisions on governance. In particular, 
§ 11 (a)  recommends  each  Member  State  to  nominate  a  national  Child  Guarantee 
Coordinator,  equipped  with  adequate  resources  and  a  mandate  enabling  the  effective 
coordination and monitoring of implementation. While all Member States have nominated 
national Coordinators, their mandates and resources do not always appear adequate. This 
is  especially  the  case  in  Member  States  where  regions  or  federated  entities  have  hold 
primary competence for education, social policies and healthcare. In some Member States, 
coordination  between  the  ministries  responsible  for  social  inclusion  (where  most  Child 
Guarantee  Coordinators  are  located)  and  the  ministries  responsible  for  education  and 
healthcare also appears challenging. 

Since 2021, the Commission has facilitated close exchanges among Child Guarantee 
Coordinators. Held in both in-person and online format, these exchanges have helped to 
clarify  the  goals  of  the  ECG,  and  to  jointly  discuss  the  most  efficient  paths  towards 
achieving them. Beyond current organisational issues, the topics have included access to 
healthcare, the returns from investment in children and social cohesion, support to refugee 
children  from  Ukraine,  governance  frameworks  for  ECG  implementation,  child 
participation, local aspects of ECG implementation, early childhood education and care, 
the  provision  of  free  school  meals,  outreach  to  vulnerable  children,  stakeholder 
involvement, inclusive education, access to adequate housing and the provision of quality 
alternative care. Several meetings of Child Guarantee Coordinators have been or will be 
organised by EU Presidencies, demonstrating continued political support for the ECG.  

17 

 
 
 
 
 
 
 
 
 
 
 
 
 
Governing ECG implementation in Ireland 

In Ireland, a robust national governance framework addressing child poverty is exemplified by 
the establishment of the Child Poverty and Wellbeing Programme Office within the Department 
of the Taoiseach. Reflecting high-level political engagement, this centrally located office fosters 
a whole-of-government approach, coordinating efforts across various departments to implement 
comprehensive  responses  to  child  poverty  and  social  exclusion.  This  strategic  positioning 
facilitates collaboration, allowing for a multidimensional approach that accounts for the diverse 
needs of children across Ireland. 

2.2.2.  National action plans for implementation of ECG 

The ECG requested Member States to prepare and submit, within nine months from 
its adoption (34) action plans that cover the period until 2030 (§ 11). The action plans 
must  reflect  national,  regional  and  local  circumstances  and  existing  policy  actions  and 
measures  specifically  designed  to  support  children  in  need (35).  As  per  the  ECG 
Recommendation, the action plans should specify the targeted categories of children, set 
quantitative  and  qualitative  targets,  describe  existing  or  planned  policy  measures  to 
implement ECG, as well as refer to other measures to address child social exclusion and 
to  break  intergenerational  cycles  of  disadvantage  (§ 6  of  the  ECG  Recommendation 
specifies what should be included in a wider policy framework to enable social inclusion 
of  children,  going  beyond  the  provision  of  services  covered  by  the  ECG).  Finally,  the 
action  plans  should  include  a  national  framework  for  data  collection,  monitoring  and 
evaluation, which could then feed into a common EU-level monitoring framework.  

Stakeholders involvement in Italy 

In  developing  its  action  plan,  Italy  secured  direct  involvement  of  various  stakeholders (ministries  and 
government agencies, local authorities, regions, experts, representatives of civil society), and of children 
themselves (the Youth Advisory Board). The work on the action plan was divided among four working 
groups: (1) early childhood education and care, education, a healthy meal a day at school; (2) the right to 
health and healthy nutrition; (3) prevention of and fight against poverty and social disadvantage, the right 
to housing; (4) governance and system infrastructure. The Italian action plan considered also the results 
of  the  Child  Guarantee  Pilot,  which  proved  to  be  very  useful  in  analysing  the  country’s  policies, 
identifying constraints and perceived challenges. The additional help from the Instituto degli Innocenti 
and ISTAT allowed to outline both the many things Italy had done in favour of childhood and adolescence, 
and the weak points of its welfare system. 

The  level  of  ambition  of  the  national  action  plans  varied  significantly.  Overall,  the 
most  effective  action  plans  combined  well-identified  target  groups  of  children  (with 
specific data and disadvantages faced by each group), clearly defined objectives (precise, 
measurable goals with defined timelines), took a comprehensive approach (planning policy 
measures across various policy areas such as education, healthcare, housing, and nutrition 
linked to funding), and listed targeted policy measures tailored to the specific needs of the 
vulnerable groups. Conversely, the main weaknesses of the action plans included a lack of 
specific  (clear  and  measurable)  objectives  and  timelines,  insufficient  detail  on  target 
groups,  implementation  strategies,  focus  on  interventions  for  an  overly  narrow  sub-

(34)  I.e. by 15 March 2022 as the ECG Recommendation was adopted on 14 June 2021.  

(35)  https://employment-social-affairs.ec.europa.eu/policies-and-activities/social-protection-social-

inclusion/addressing-poverty-and-supporting-social-inclusion/investing-children/european-child-
guarantee/national-action-plans-and-progress-reports_en.  

18 

 
 
 
category of  children in  need or presenting universal  measures without proper targeting, 
weak  or  missing  monitoring  and  evaluation  frameworks  and  inadequate  coordination 
mechanisms. 

2.2.3.  Monitoring frameworks  

The  ECG  Recommendation  mandates  the  establishment  of  a  common  monitoring 
framework to assess progress in the implementation of the ECG, which is managed by the 
Commission jointly with the Social Protection Committee (SPC). The first version of the 
ECG monitoring framework was developed by the Indicators’ Sub-Group (ISG) of the SPC 
and endorsed by the SPC in November 2023 (36). The ECG monitoring framework features 
seven  sections.  The  first  section  is  dedicated  to  the  monitoring  of  the  number  and  the 
situation of children in need, identified as the target group of the Recommendation. The 
six  other  sections  focus  on  monitoring  the  access  of  these  children  to  the  six  services 
spelled  out  in  § 4  of  the  ECG  Recommendation  (early  childhood  education  and  care, 
education  including  school-based  activities,  school  meals,  healthcare,  healthy  nutrition, 
and adequate housing). The framework was updated twice (in May and in December 2025) 
to reflect the latest data available as well as to fill in some gaps left in the previous versions. 
New  contextual  information  on  quality  of  education,  the  provision  of  educational 
materials,  including  digital  tools,  and  health-related  aspects  was  for  instance  added. 
Graph 5 shows changes in the selected indicators, for a full list of indicators see Annex II. 

The  EU-level  tool  relevant  for  tracking  progress  on  ECG  is  the  benchmarking 
framework on childcare and support to children established by SPC in 2021 (37). It 
aims to monitor two key aspects of Principle 11 of the European Pillar of Social Rights: 
children’s right to affordable early childhood education and care of good quality and the 
right to be protected from poverty. It includes 14 indicators, divided in three sections, each 
respectively covering related outcome, performance and policy levers. Complementing the 
ECG  monitoring  framework,  it  provides  additional  information  on  key  drivers  of  child 
poverty,  ranging  from  parents’  employment  to  efficiency  of  social  transfers.  The 
benchmarking framework has been updated three times, most recently in autumn 2025.  

(36)  https://employment-social-affairs.ec.europa.eu/policies-and-activities/social-protection-social-inclusion/social-

protection-committee/indicators-sub-group/monitoring-and-benchmarking-frameworks_en.  

(37)  https://employment-social-affairs.ec.europa.eu/policies-and-activities/social-protection-social-inclusion/social-

protection-committee/indicators-sub-group/monitoring-and-benchmarking-frameworks_en. 

19 

 
 
 
 
Graph 5: Change in the EU average of selected indicators from the EU Monitoring Framework, 
between  1st  and  3rd  version  (percentage  points,  green  denotes  favourable  developments,  red  – 
unfavourable) 

-5,0

0,0

5,0

Share (%) of children AROPE... 

..with at least one parent born outside the EU

..with at least one parent living in a single-parent household

..with at least one parent with a disability

..in ECEC one hour or more per week (below 3)

..in ECEC one hour or more per week (between 3 and compulsory schooling)

.. who don’t go on school trips and school events that cost money (<16)

..who suffer from the enforced lack of access to leisure activities (<16)

..who don’t eat fresh fruit and vegetables daily (<16)

..who don’t have a meal with meat/fish/protein daily (<16)

..with “very good” health (<16)

..with unmet needs for medical examination or treatment (<16)

..living in a household facing housing cost overburden

..living in an overcrowded household

..living in a household unable to keep home adequately warm

Source: EU Monitoring Framework for European Child Guarantee, 1st and 3rd versions. 

Member States are recommended to set up a national framework for data collection, 
monitoring and evaluation (38). Several Member States have set clear quantitative targets 
in their national action plans to steer the implementation of the ECG. As an illustration, 
Spain  set  intermediary  and  final  targets  for  key  objectives  for  2025  and  2030 (39).  To 
monitor achievement of these targets and overall progress in the roll-out of national action 
plans, all Member States have either made use of existing national monitoring frameworks 
or established new ones dedicated to the ECG. Belgium, France and Finland rely heavily 
on the EU monitoring framework, which might not allow to fully track distinct national 
measures given the need for more granular data. Czechia and Portugal integrated indicators 
from the EU-level monitoring framework with additional national and local indicators, in 
the  Portuguese  case  emphasising  a  multi-level  data  collection  strategy  involving  local 
authorities. Some Member States have chosen to go beyond EU indicators. For instance, 
Sweden follows its own approach as regards defining socio-economic disadvantages. This 
allows to capture country-specific nuances in child poverty and social exclusion. Bulgaria 
uses 2-yearly operational plans to implement their Child Guarantee Action Plan connecting 
specific activities with performance indicators, deadlines, amounts and sources of funding 

(38)  § 11 (c)(v) of ECG Recommendation. 

(39)  E.g. “reaching the EU average on social protection expenditure on children and families in 2030”, “75% 
of ECEC enrolment rate at two years of age in 2025, 85% in 2030”, “reduction in the rate of early school 
leaving from education and training to 11% in 2025 and 9% in 2030”, “reduce by 20% the proportion 
of children of low-income households who cannot afford to eat fresh fruit and vegetables at least once a 
day in 2025 and by half in 2030”.  

20 

 
 
 
 
and  responsible  institutions  in  all  areas  of  impact.  However,  notable  gaps  persist. 
Vulnerable groups, such as homeless children, often lack detailed tracking regarding the 
size of these populations and their access to different services. Additionally, the quality of 
services and issues such as non-take-up are frequently overlooked. Addressing these gaps 
through  more  targeted  (administrative)  data  collection  efforts  and  inclusive  monitoring 
practices would enable a richer, more effective policy evaluation landscape across Member 
States, guiding them towards achieving the objectives set by the ECG. 

Some Member States have made use of the Technical Support Instrument (TSI) to set 
up  and  enhance  their  national  monitoring  frameworks  (Greece,  Romania,  Estonia  and 
Portugal). For instance, Greece utilised TSI support to establish an intricate system that 
integrates  multiple  data  sources,  resulting  in  a  comprehensive  evaluation  mechanism 
focused on poverty reduction and educational attendance. This integration allows Greece 
to track improvements in specific areas effectively and adjust policies based on robust data 
insights. Similarly, Romania benefited from TSI aid by developing a centralised database 
dedicated  to  identifying  child-specific  indicators,  which  has  improved  their  ability  to 
conduct quality impact assessments and facilitate timely interventions. Estonia provides 
another illustrative example, where TSI involvement led to the adoption of advanced data 
analytics tools. These tools have enhanced the tracking of non-take-up rates for services 
and  improved  insights  into  delivery  effectiveness,  thereby  helping  Estonia  refine  its 
approach to child welfare monitoring and service implementation. 

2.2.4.  Biennial progress reports 

All Member States have demonstrated some progress in the implementation of the 
ECG.  The  ECG  Recommendation  requires  also  qualitative  reporting  by  the  Member 
States. This should be done every two years, counting from the deadline for formulation 
of the action plans. Notwithstanding significant delays in reporting (the last report from 
the 2024 round was submitted to the Commission in June 2025), all Member States have 
demonstrated some progress in the implementation of the ECG. Across all 27 reports, the 
aspect  that  appears  to  be  best  covered  is  the  provision  and  access  to  early  childhood 
education  and  care.  Many  reports  highlight  initiatives  related  to  increasing  the 
accessibility, inclusivity and quality of the respective services. Several reports mention the 
extension  or  improvement  of  early  childhood  education  programmes,  free  pre-school 
education years, and efforts to make ECEC accessible to disadvantaged groups. Initiatives 
to provide free or subsidised school meals are also reported quite often. Efforts to make 
education more inclusive were also frequently noted, with measures to support children 
with  disabilities  and  minority  groups,  such  as  Roma  children,  ensuring  their  full 
participation in the educational system. 

On the other hand, the aspect least covered across the progress reports in 2024 round 
seems to be comprehensive data collection and systematic progress monitoring. The 
absence of clearly defined quantitative and qualitative targets  in  numerous action plans 
(and  consequently  also  in  progress  reports)  is  notable,  restricting  the  ability  to  gauge 
success  and guide future actions. Several  reports mention  the insufficiency of available 
data,  making  it  difficult  to  assess  the  progress  and  challenges  in  implementing  the 
European  Child  Guarantee.  This  highlights  gaps  in  establishing  systematic  monitoring 
frameworks  that  can  evaluate  the  effectiveness  of  the  initiatives.  Lastly,  specific 
information  regarding  the  financial  aspects  of  ECG  implementation,  such  as  budget 
allocations for initiatives, expenditure tracking  and utilisation of funds, particularly  EU 
funding, is often lacking. 

21 

 
 
The deadline for submission of the second round of biennial progress reports elapsed 
on 15 March 2026. Until 17 April 2026 – which is the cut-off date for analytical sources 
used in this Staff Working Document – 14 reports have been submitted to the Commission 
(Austria,  Belgium,  Cyprus,  Estonia,  Greece,  Italy,  Latvia,  Luxembourg,  Netherlands, 
Poland,  Romania,  Slovenia,  Slovakia  and  Sweden).  Overall,  they  confirm  high 
heterogeneity of the situation of children in need across the EU, and of the degree to which 
implementation of the European Child Guarantee is an actual priority in specific Member 
States. The  issue  of  availability  of  data  has  not  been  satisfactorily  resolved,  with  some 
reports quoting the same numbers as two years prior. While some progress reports (e.g. 
Estonia) are  highly informative and provide  clear discussion of developments  that took 
place since the previous round, others could be more synthetic in their approach and avoid 
repetitions from previous reports.    

2.2.5.  Implementation of ECG in candidate countries and potential candidates 

Child  poverty  remains  high  in  EU  neighbouring  countries (40).  To  overcome  it, 
candidate countries and potential candidates have actively engaged with the Commission 
and started working to implement the ECG already ahead of their EU accession, as part of 
the alignment process with EU acquis under Chapter 19 “Social policies and employment”. 
The  Commission  has  invited  Albania,  Bosnia  and  Herzegovina,  Kosovo (41),  Moldova, 
Montenegro, North Macedonia, Serbia, Türkiye and Ukraine to nominate Contact Points, 
who  would  take  the  lead  in  the  implementation  of  the  ECG  in  their  countries.  All 
approached governments responded positively, set up relevant structures and are working 
on their national action plans, while collaborating with the Commission and the national 
Child Guarantee Coordinators from Member States to take advantage of their experience. 
The Commission provides support in the roll-out of the ECG through different instruments 
and tools, including a partnership with UNICEF aimed at assisting the candidate countries 
and potential candidates in the roll-out of the ECG. As an example, in Ukraine, the EU is 
supporting  financially  the  Better  Care  reform,  aimed  to  improve  the  standards  of  child 
protection and alternative care systems and is thus directly linked to ECG objectives.   

EU support for children of Ukraine 

Following  the  full-scale  invasion  of  Ukraine  in  2022,  nearly  2,500  children  were  evacuated  from 
Ukrainian residential care institutions to Poland. While the rapid response of Polish authorities and NGOs 
ensured  immediate  safety,  children  were  accommodated  in  large  group  facilities  outside  the  Polish 
alternative care system and not in line with proper care standards. 

Since  March  2022,  governments  of  Poland  and  Ukraine  have  worked  with  UNICEF  to  develop  a 
standards-compliant care model. Their efforts were supported financially first by the US and then by the 
EU,  the  latter under  the project  “Improving  Alternative  Care  for  Children  Evacuated  from  Ukraine  to 
Poland”, with a budget of EUR 5.5 million, out of which EUR 5 million from EU sources. The project 
running until summer of 2026, has provided care and protection to 563 children. 

The project introduced small, family-type homes (up to 14 children), with trained caregivers from Poland 
and Ukraine, individual care plans, access to health and mental health services, education, rehabilitation 
and  transition  support  for  young  adults.  All  children  were  relocated  from  large  facilities.  The  model 
strengthened  the  Polish  alternative  care  system,  informed  legal  amendments,  secured  national  ESF+ 
funding  for  sustainability  and  contributed  to  reform  of  alternative  care  in  Ukraine  through  capacity 
building and knowledge sharing. 

(40)  Some of the most recent figures (AROPE for 0-18 age group): 46.6% in Albania (2023), 38.1% in North 

Macedonia (2023), 37.6% in Türkiye (2025). Source: Eurostat (online data code ilc_peps01n). 

(41)  Designation without prejudice to positions on status and is in line with UNSCR 1244/1999 and the ICJ 

Opinion on the Kosovo declaration of independence. 

22 

 
 
 
2.3 

EU funding 

2.3.1. 

The European Social Fund+  

The European Social Fund+ (ESF+) is the EU’s main instrument for investing in 
people. It supports the implementation of the European Pillar of Social Rights principles, 
including principle 11 “Childcare and support to children” through actions in the areas of 
employment, education and skills and social inclusion. In accordance with Article 7(3) of 
the  ESF+  Regulation,  all  Member  States  shall  allocate  an  appropriate  amount  of  their 
resources of the ESF+ strand under shared management for targeted actions and structural 
reforms  to  combat  child  poverty,  including  by  implementing  the  European  Child 
Guarantee (42). According to the same article, “Member States that had an average rate 
above the Union average of children of less than 18 years old at-risk poverty or social 
exclusion  for  the  period  between  2017  and  2019,  shall  allocate  at  least  5%  of  their 
resources of the ESF+ strand under shared management to support targeted actions and 
structural reforms to tackle child poverty (…).” Eleven Member States are concerned by 
this  provision:  Bulgaria,  Cyprus,  Croatia,  Greece,  Hungary,  Ireland,  Italy,  Lithuania, 
Luxembourg, Romania and Spain. 

For the 2021-–2027 programming period, EUR 9.6 billion (including an EU amount 
of EUR  6.7  billion), are programmed under the Secondary Theme 6 ‘Addressing 
child poverty’ (see Table 1). However, some Member States (Slovenia, Netherlands and 
Denmark) are not using this Secondary Theme. Slovenia has allocated funds to address 
child poverty under other priorities. The Netherlands will programme measures to address 
child poverty through the specific objective dedicated to food and material support. In 
Denmark, there are no allocations under secondary theme 06. 

Under  the  ESF+,  Member  States  can  address  child  poverty  in  different  yet 
complementary ways, combining ‘hard’ and ‘soft’ investments.  One approach is to 
address child poverty through broader measures that alleviate poverty among parents and 
families. This leads Member States to programme measures supporting parents and their 
labour  market  integration,  for  instance  by  promoting  a  better  work-life  balance  for 
example through improving access to childcare services or modernising available social 
services (Greece,  Latvia  and  Slovakia).  Most  Member  States  also  provide  families 
supported access to healthcare, psychological support and preventive services, including 
addiction treatment, to safeguard their well-being (Belgium, Bulgaria, Cyprus, Estonia, 
France, Germany, Greece, Italy, Latvia, Lithuania, Poland, Portugal, Romania, Slovakia, 

(42) Reference is made to the specific objectives set out in Article 4(1), points (f) and (h) to (l) of the ESF+ 
Regulation.  Those  include:  (f)  promoting  equal  access  to  and  completion  of  quality  and  inclusive 
education and training, in particular for disadvantaged groups, from early childhood education and care 
through general and vocational education and training, to tertiary level, as well as adult education and 
learning, including facilitating learning mobility for all and accessibility for persons with disabilities; 
(h)  fostering  active  inclusion  with  a  view  to  promoting  equal  opportunities,  non-discrimination  and 
active participation, and improving employability, in particular for disadvantaged groups; (i) promoting 
socio-economic  integration  of  third-country  nationals,  including  migrants;  (j)  promoting  the  socio-
economic  integration  of  marginalised  communities,  such  as  Roma  people;  (k)  enhancing  equal  and 
timely access to quality, sustainable and affordable services, including services that promote the access 
to  housing  and  person-centred  care  including  healthcare;  modernising  social  protection  systems, 
including promoting access to social protection, with a particular focus on children and disadvantaged 
groups; improving accessibility including for persons with disabilities, effectiveness and resilience of 
healthcare  systems  and  long-term  care  services;  (l)  promoting  social  integration  of  people  at  risk  of 
poverty or social exclusion, including the most deprived persons and children; Regulation - 2021/1057 
- EN - EUR-Lex. 

23 

 
 
 
Spain  and  Sweden).  The  ESF+  also  provides  parents  with  material  support  to  ensure 
children  attend  school  in  good  conditions,  for  example  by  helping  purchase  school 
materials or facilitating transport to schools (Austria, France, Hungary, Lithuania, Latvia, 
Netherlands, Romania, Slovakia and Slovenia). The ESF+ contributes to providing basic 
material support to children and people most in need, including meals (Belgium, Bulgaria, 
Croatia, Cyprus, France, Italy, Latvia, Lithuania, Latvia, Netherlands, Poland, Portugal, 
Romania and Slovakia)., and essential items such as baby and hygiene products (Cyprus, 
Latvia, Lithuania and Netherlands). 

Table  1:  ESF+  investments  under  Secondary  Theme  06,  Addressing  child  poverty,  2021-2027 
programming period  
Member State 

Total investment under ST06, 
including national and EU 
contributions, in EUR 

199 154 827  
100 316 661  
165 144 004  
249 700 000  
39 166 667  
84 111 350  
31 418 502 
63 493 418 
39 522 251 
737 544 440 
896 623 666 
380 949 694 
132 214 743 
2 298 374 914 
59 279 659 
111 025 207 
2 479 543 
9 151 000 
1 445 368 039 
561 264 531 
564 831 706 
298 538 188 
1 091 853 155 
11 325 299 
9 572 851 462 
Note: Data retrieved on 17 April 2026. The amounts are indicative, as secondary themes reflect estimates 
planned by the Managing Authorities rather than actual budgeted amounts.  

Share of investments under 
ST06 over total ESF+ 
investments 
20.62% 
3.46% 
5.28% 
11.01% 
11.04% 
2.66% 
5.10% 
7.00% 
0.37% 
5.59% 
12.79% 
6.11% 
12.23% 
8.15% 
7.11% 
9.30% 
7.02% 
4.47% 
9.52% 
5.99% 
6.63% 
10.34% 
6.72% 
0.70% 
6.88% 

Austria 
Belgium 
Bulgaria 
Croatia 
Cyprus 
Czechia 
Estonia 
Finland 
France 
Germany 
Greece 
Hungary 
Ireland 
Italy 
Latvia 
Lithuania 
Luxembourg 
Malta 
Poland 
Portugal 
Romania 
Slovakia 
Spain 
Sweden 

TOTAL 

The  ESF+  plays  a  key  role  in  encouraging  parents  to  enrol  their  children  in 
education,  raising  awareness  and  facilitating  the  development  of  early  childhood 
education and care (ECEC) services (Bulgaria, Croatia, Germany, Greece, Italy, Latvia, 
Lithuania,  Poland,  Portugal,  Romania,  Slovakia,  Spain  and  Sweden).  Moreover, 
promotion of healthy nutrition in schools is also among the investments made (France, 
Spain,  Slovakia  and  Sweden).  Some  Member  States  target  children  from  vulnerable 
groups, such as Roma or migrant children (Bulgaria, Croatia, Czechia, France, Greece, 
Hungary, Luxembourg, Poland, Portugal, Romania, Romania, Spain and Slovakia). The 
ESF+ is also used to alleviate the cost of ECEC as well as primary and secondary school 
services for families in vulnerable situations (Bulgaria, Cyprus and Lithuania). Moreover, 
ESF+ contributes to  making education  more inclusive (e.g. by supporting intercultural 
projects) and promotes non-formal education through extracurricular  activities  such as 
sport,  arts,  science  and  holiday  camps  (Austria,  Bulgaria,  France,  Germany,  Greece, 

24 

 
 
Hungary, Lithuania, Netherlands, Romania and Sweden). In addition, the ESF+ is also 
supporting  the  adaptation  and  modernisation  of  learning  methods  (Bulgaria,  Croatia, 
Germany,  Slovakia  and  Spain),  particularly  through  the  integration  of  digital 
technologies. These efforts aim to ensure that teaching approaches better fit the needs of 
children  with  disabilities  or  experiencing  learning  difficulties  (Belgium,  Bulgaria, 
Croatia,  Cyprus,  Greece,  Hungary,  Latvia,  Lithuania,  Poland,  Romania,  Slovakia  and 
Spain). ESF+ has played a key role by supporting Romania in the roll-out of school meals 
scheme. 

Another  key  contribution  is  improving  guidance  and  orientation  for  pupils, 
including  by  facilitated  access  to  counselling  centres  (Austria,  Germany  and 
Lithuania).  Initiatives  to  prevent  early  school  leaving,  such  as  after-school  services, 
support  more  equitable  education.  In  some  Member  States,  these  measures  are 
complemented by retraining and upskilling of care staff and teachers (Bulgaria, Croatia, 
France,  Germany,  Greece,  Ireland,  Latvia,  Lithuania,  Poland,  Romania  and  Slovakia). 
Actions to address bullying, violence and risk behaviour, both at school and beyond, have 
also  been  implemented  in  several  Member  States  (Austria,  Bulgaria,  Estonia,  France, 
Greece, Latvia, Lithuania, Poland, Portugal and Slovakia). 

the 

support  of 

the  ESF+,  Member  States  also  promote 

With 
the 
deinstitutionalisation  of  children  in  the  alternative  care  system,  transition  to 
independent living and support children during adoption processes or during their stay in 
socialisation centres (Latvia, Lithuania, Poland, Portugal, Romania, Slovakia and Spain). 
In the area of access to housing services, measures have been introduced to ease access 
and  address  discrimination  against  disadvantaged  groups  (Bulgaria,  France,  Greece, 
Hungary,  Poland,  Romania,  Slovakia  and  Sweden).  Czechia  and  France  focus  on 
preventive measures against the loss of accommodation.  

Finally, in some Member States, some projects focus on capacity-building for local 
administrations, particularly social services (Czechia, Finland, Germany, Greece and 
Slovakia).  For  example,  support  is  provided  for  integrated  municipal  social  planning 
through  the  development  and  implementation  of  data-based  approaches  to  social 
inclusion for populations at risk of social exclusion or poverty. 

Examples of the ongoing ESF+ projects 

•  The ‘Future for Children’ project in Bulgaria supports vulnerable children through health, education 
and social services to reduce poverty, prevent abandonment and improve well-being. These actions 
include early childhood care, disability support and labour market integration.   

•  The ‘Actions for School and Social Inclusion’ (DRASE+) initiative in Cyprus aims to mitigate the 
negative impact of the economic crisis on education and to prevent social exclusion of vulnerable 
groups of pupils. It offers a range of measures aimed at preventing social exclusion, including new 
learning and creativity programs, access to socio-emotional support centres, new school equipment 
and educational materials and training programs for teaching staff. 

•  The project ‘Ensuring early childhood education for children from families at social risk’ in Lithuania 
aims to successfully involve children from families at risk of social exclusion or poverty in pre-school 
and pre-primary education by providing them with assistance in the educational process. 

25 

 
 
 
 
 
2.3.2.  The Recovery and Resilience Facility 

ESF+ funds are used in combination with national funding and/or the Recovery and 
Resilience  Facility  (RRF)  to  support  the  implementation  of  the  European  Child 
Guarantee,  particularly  in  areas  such  as  early  childhood  education  and  care,  school 
infrastructure, accessibility and social inclusion. In Bulgaria, the RRF (together with the 
European Regional Development  Fund) finances the development  of kindergarten and 
school infrastructure. Latvia uses several RRF investments to improve accessibility and 
services, including EUR 8.9 million to improve accessibility in 63 public buildings where 
social  and  welfare  services  are  delivered,  benefiting  children,  including  children  with 
disabilities,  by  early  2026.  Additional  Latvian  projects  include  “Support  measures  for 
people with disabilities to ensure the accessibility of housing environments” (EUR 4.8 
million) and “Facilitating the availability of technical aids” (EUR 7.2 million), which also 
provide support and assistive devices for children with disabilities. In Croatia, significant 
RRF  funding  supports  education  infrastructure  aimed  at  expanding  access  to  early 
childhood education and enabling full-day schooling. Cyprus allocates RRF resources to 
reforms and investments under the recovery plan, including “Gradual extension of free 
compulsory pre-primary education from the age of four” (EUR 12.23 million), “Digital 
transformation  of  school  units”,  and  investments  such  as  the  establishment  of 
multifunctional  centres  and  childcare  centres  (EUR  6.1  million),  child  centres  in 
municipalities and the construction of two model special education schools, which expand 
childcare  places,  strengthen  early  education  systems  and  support  children  with  special 
educational needs. Hungary also plans to use RRF resources in areas such as education 
and housing. 

2.3.3.  The Social Climate Fund 

The Social Climate Fund (SCF) supports vulnerable households by addressing the 
social impacts of the green transition, and supports children by tackling energy and 
transport poverty, particularly for families with many children, single-parent families 
and children in vulnerable areas. The SCF supports measures and investments in line with 
the recommendations in the European Child Guarantee by increasing access to affordable, 
energy-efficient housing, including social housing, e.g. by renovating and constructing 
new,  energy-efficient  social  housing  and  reducing  the  risk  of  energy  poverty  while 
securing a healthy living environment for children. The SCF also addresses the territorial 
dimension of social exclusion by supporting investments in affordable means of public 
and  private  transport,  e.g.  zero-emission  school  transport  and  the  construction  of  bike 
lanes for school children in vulnerable areas, reducing transport barriers for children to 
participate in education and school-based activities. The SCF can also supports Member 
States  to  secure  better  access  for  vulnerable  children  to  social  and  health  services, 
particularly in rural areas.  

2.3.4.  The European Regional Development Fund (ERDF) 

The  European  Regional  Development  Fund  (ERDF)  supports  Member  States  in 
implementing the objectives and recommendations of the European Child Guarantee 
and  in  tackling  poverty  and  social  exclusion  through  investments  in  infrastructure, 
equipment and access to mainstream quality services in education, employment, housing, 
social  services,  health  and  childcare,  while  paying  particular  attention  to  addressing 
socioeconomic,  regional  and  territorial  disparities.  Under  its  European  Territorial 
Cooperation  (Interreg)  strand,  the  ERDF  can  also  support  cross-border  cooperation 

26 

 
 
(including measures to address policy, legal and administrative barriers). Notably, ERDF 
investments can support early childhood education and care (investments in infrastructure 
and  equipment,  including  in  the  workplaces),  education  and  school-based  activities 
(investments  in  school  and  out-of-school  infrastructure  and  equipment;  providing 
conditions for digital education, including access to internet, purchase of digital equipment 
and e-learning applications and platforms for schools; supporting services in order to build 
inclusive education – e.g. school bus, extending the capacity of the mainstream schools, 
student  dormitories  and  canteens),  healthcare  (infrastructure  and  equipment  with  a 
particular  focus  on  primary  care,  integration  of  care  between  all  levels  of  care, 
digitalisation  of  health  services),  and  adequate  housing  (construction  and  renovation  of 
affordable  and  sustainable  housing,  including  social  housing  and  targeted  energy 
efficiency renovations in housing from which children and their families can benefit, as 
well as supporting the transition from institutional to family- and community-based care 
for children in alternative care). The ERDF support prioritises strengthening equal access 
to mainstream quality and inclusive services as well as contribute to the development of 
community-  and  family-based  services 
the  non-segregation  and 
deinstitutionalisation principles.  

line  with 

in 

To  respond  effectively  to  the  complex  needs  of  vulnerable  children,  an  integrated 
approach to the design of investments is needed. The European Commission encourages 
the prioritisation of integrated measures that cover multiple areas of focus of the European 
Child Guarantee in a complementary manner. The ERDF and the European Social Fund 
Plus can be used jointly by combining investments in infrastructure development (ERDF) 
with  service  development  and  human  capacity-building  (ESF+),  the  so-called  “soft 
measures”,  to  maximise  the  impact  of  the  support.  For  the  2021-2027  period,  Member 
States and regions have allocated under ERDF EUR 940 million to investments in ECEC 
(both  infrastructure  and  non-infrastructure  support),  EUR 3  billion  to  primary  and 
secondary  education  (both  infrastructure  and  non-infrastructure  support),  and  EUR 7.2 
billion to healthcare (including investments in infrastructure, equipment, e-health services, 
digitalisation  measures,  accessibility,  effectiveness  and  resilience  measures  and  mobile 
assets). Under ERDF, the Cohesion Fund (CF) and the Just Transition Fund (JTF), EUR 
10.5  billion  have  been  allocated  to  construction  and  renovation  of  housing  (including 
energy efficiency measures, affordable and social housing), from which children as one of 
the target groups can benefit. These initiatives promote social inclusion, economic growth 
and reduce territorial disparities, while energy efficiency projects further alleviate energy 
poverty, therefore contributing extensively to the UN's Sustainable Development Goal 1—
No Poverty (43). 

2.3.5. 

Technical Support Instrument 

Through the Technical Support Instrument (TSI), the Commission has helped EU 
Member States overcome practical challenges in implementing the European Child 
Guarantee.  Since  2022,  14  projects,  comprising  two  multi-country  and  12  standalone 
initiatives,  have  been  funded  across  13  Member  States.  Currently,  two  projects  are 
ongoing:  the  multi-country  project  "Strengthening  Child  Rights  and  Protection"  in 

(43)  Data on ERDF allocations extracted on 15 March 2026. Such data only reflects EU allocations and does 
not  include  national  contributions.  Other  ERDF  interventions  in  the  fields  of  social  inclusion, 
digitalisation, energy efficiency, transport, culture and sustainable tourism, and territorial development 
may also support children and the ECG but, given that they also cover other non-related dimensions not 
related to social inclusion or are not targeting children specifically, it is not possible to fully compute 
the extract contribution to this topic. 

27 

 
 
 
Czechia, Croatia, Ireland and Portugal, and the project focused on "Fostering Monitoring, 
Evaluation, and Child Participation in Child-Related Policies" in Romania. 

The multi-country project’s goal is to enhance child rights and protection systems in these 
countries,  ensuring  coordinated  policy  development  and  service  delivery.  It  intends  to 
facilitate data-driven decision-making, inclusion and compliance with EU standards. The 
project  includes  specific  activities  for  each  country,  such  as  moving  away  from 
institutional care in Portugal, improving adoption policies in Ireland, building capacity for 
ECG implementation in Croatia and reviewing  child protection laws in  Czechia. It also 
involves shared activities that promote the exchange of expertise and best practices across 
all countries. 

The  Romanian  project  aims  to  address  the  country’s  challenges  in  systematically 
monitoring and evaluating child-related policies, with fragmented data systems and limited 
integration  between  local  and  national  levels.  Additionally,  there's  no  framework  for 
children's involvement in policy-making that directly impacts them. To address this, the 
project  will  provide  practical  tools  and  recommendations  to  improve  child  policies, 
emphasising data collection and monitoring, budget planning and child participation. In 
the  medium  term,  the  project  aims  to  enhance  capacity  and  tools  for  planning, 
implementing,  monitoring  and  evaluating  measures  for  children.  In  the  long  term,  it  is 
expected  to  improve  child-related  policies  and  enhance  socio-economic  indicators  for 
children. 

Technical Support Instrument (TSI) projects linked to ECG implementation 

• 

In Greece, following TSI projects, authorities are targeting child obesity and promoting healthy 
nutrition.  Centres  for  Interdisciplinary  Assessment,  Counselling  and  Support  and  the 
Interdisciplinary Support Committees have been established to enhance inclusive education. 
•  A multi-country project helped Portugal, Italy and Spain to devise and apply consistent, high-
quality  inclusive  education  policies,  thereby  diminishing  regional  disparities.  Guided  by  the 
recommendations  of  this  project,  Spain  has  already  announced  a  substantive  reform  of  its 
inclusive education model. In Portugal and Italy, the project is expected to guide further reforms 
aimed  at  improving  monitoring  and  evaluation  efforts  and  bolstering  initial  and  continuous 
professional development opportunities for teachers, among other core aspects.    
In  Ireland, a project informed implementation and provided guidance to improve monitoring 
and evaluation, with a view to securing a  whole-of-government,  cross-sectoral and integrated 
policy  approach.  It  aimed  to  enhance  the  engagement  of  governmental  and  civil  society 
stakeholders at all levels. It also identified opportunities to engage children and young people in 
decision-making and promote their rights. Finally, the project fostered expertise and technical 
know-how among public officials through capacity-building activities.   

• 

•  Through the TSI, the Commission supported authorities in  Portugal to develop capacities for 
monitoring and evaluating the implementation of the national Child Guarantee Action Plan, to 
strengthen  the  capabilities  of  local  Child  Guarantee  units,  reinforce  direct  engagement  with 
children and young people and support greater coordination across national and local policies.  
•  A project helped Romania to develop a legal framework to enforce legislation prohibiting school 
segregation  and  bolstered  the  education  system's  capacity  to  prevent  and  address  school 
segregation, thereby enhancing educational equity. Through different exchanges, webinars and 
workshops, the project also helped bring together and encourage collaboration between a variety 
of  stakeholders  across  Romania’s  education  system.  Ultimately,  the  project  results  will 
contribute to enhancing the efficiency and equity of the pre-tertiary education in Romania  
•  A  project  in  Slovakia  revised  models  for  the  social  inclusion  of  children  with  disabilities, 
empowering substitute care systems to deliver quality services in alliance with other agencies. 
This  project  also  boosted  administrative  capabilities  for  monitoring,  evaluating  and 
mainstreaming these revised approaches within existing systems. 

28 

 
 
2.3.6.  Erasmus +  

The  Erasmus+  programme  with  its  priority  of  Inclusion  and  Diversity  is  strongly 
connected to the needs of children in vulnerable situations, as it focuses on ensuring 
that those with fewer opportunities can fully participate in education and social life. Many 
vulnerable  children  face  barriers  such  as  poverty,  disability,  discrimination,  or  limited 
access to quality education. By encouraging inclusive practices and providing additional 
support where needed, Erasmus+ helps remove these obstacles and creates more equitable 
learning environments. This approach not only improves access to opportunities but also 
promotes a sense of belonging, confidence and active participation, supporting the overall 
well-being and social inclusion of vulnerable children. 

The Digital Transformation priority strand enhances these efforts by addressing the 
growing importance of digital access and skills. Vulnerable children are often at greater 
risk of being excluded from digital learning due to limited resources or lack of support. By 
promoting  digital  literacy,  innovative  teaching  methods  and  the  use  of  technology  in 
education,  Erasmus+  helps  bridge  this  gap  and  makes  learning  more  accessible  and 
flexible. Digital tools can open new pathways for participation, allowing children to engage 
in education regardless of their circumstances.  

29 

 
 
 
 
3.  PROGRESS WITH ECG IMPLEMENTATION  

Since the establishment of the ECG, progress in its implementation has been tracked 
through  the  EU  monitoring  framework  (see  Section  3.3.3  above),  as  well  as  through 
analysis of the national action plans, the biennial progress reports, expert reports produced 
by  the  European  Social  Policy  Analysis  Network  (ESPAN) (44),  results  of  academic 
research  and  advocacy  papers  by  civil  society.  Information  provided  by  the  Child 
Guarantee  Coordinators  and  bilateral  exchanges  served  as  yet  another  source  of 
information.  

To assess the degree of compliance with specific points of the ECG Recommendation, 
the Commission takes into account both quantitative and qualitative elements.  The 
country profiles, which describe the degree to which specific Member States comply with 
the specific provisions of the ECG Recommendation  and have been  consulted with  the 
national Child Guarantee Coordinators, are presented in Annex III. Sections below discuss 
the  progress  in  implementation,  reflecting  the  degree  to  which  free  and  effective  (resp. 
effective) access to the services covered by ECG has been put in place across the EU.    

3.1 

Children in need 

To implement the European Child Guarantee, Member States are recommended to 
identify  children  in  need,  and  within  this  group  to  take  into  account  specific 
disadvantages. This recommendation stems from the fact that the risk of poverty or social 
exclusion  is  a  statistical  notion  (45),  which  needs  to  be  operationalised  by  the  Member 
States  in  their  action  plans,  making  use  of  the  existing  or  new  criteria  of  eligibility  for 
social support. However, in only two action plans (Luxembourg and Hungary) a distinction 
between the estimated number of children in need and the actionable target group is made. 
Another  country  with  good  mapping  of  the  target  group  is  Estonia.  Most  action  plans, 
however, simply confirm that children AROPE (who are sometimes referred to as children 
facing  economic hardship or stemming from  economically disadvantaged backgrounds) 
constitute the target group, with numbers based usually on Eurostat calculations rather than 
national  administrative  sources.  This  approach  compromises  possibilities  of  effective 
outreach  towards  children  in  need.  A  way  to  address  this  challenge,  besides 
operationalising  criteria  of  eligibility  for  support  from  ECG,  is  to  establish  a  means  of 
tracking individual entitlements and take-up of the services.  

Another way of analysing the target group of the ECG is to break up the components 
of the AROPE (for their definitions, see box in Section 1). This shows that on average in 
the EU, approximately 19.3% of children are at risk of monetary poverty. 7.9% of children 
experience severe material and social deprivation and 7.4% of children live in households 
marked by very low work intensity. Graph 6 shows the break-up of AROPE for specific 
Member States. 

(44)  Baptista, I., Guio, A., Marlier, E. and Perista, P. (2023). Access for children in need to the key services 
covered  by  the  European  Child  Guarantee:  An  analysis  of  policies  in  the  27  EU  Member  States. 
European Social Policy Analysis Network (ESPAN), Luxembourg: Publications Office of the European 
Union,  https://data.europa.eu/doi/10.2767/45993  and  the  accompanying  country-specific  reports  at 
https://ec.europa.eu/social/main.jsp?pager.offset=0&advSearchKey=ESPAN_ECG2023&mode=advan
cedSubmit&catId=22&doc_submit=&policyArea=0&policyAreaSub=0&country=0&year=0&iframe=
true.  

(45) See box in Section 1.  

30 

 
 
 
Graph 6: Shares of children at risk of monetary poverty (AROP), in severe material and social 
deprivation (SMSD), and living in households with very low work intensity (in %) in 2024 

35

30

25

20

15

10

5

0

EU BE BG CZ DK DE EE IE EL ES FR HR IT CY LV LT LU HU MT NL AT PL PT RO SI SK FI SE

AROP

SMSD

Low work intensity

Notes: break in Croatia AROP time series and provisional data for Lithuania. 
Source: Eurostat (online data codes ilc_li02, ilc_mdsd11, ilc_lvhl11n, date of extraction – 03/12/2025). 

Looking at the situation across Member States, Spain emerges as the country with the 
highest  proportion  of  children  at  risk  of  monetary  poverty,  with  29.2%  of  children  in 
households with  incomes  below the poverty line. Turning  to  severe material  and social 
deprivation,  Romania  stands  out  with  21.2%  of  children  in  severe  material  and  social 
deprivation. This highlights gaps in the provision of basic goods and services, which are 
essential  for  healthy  development.  While  Germany  records  low  rates  of  AROP  and 
deprivation among children, the situation is notably different in terms of the work intensity 
component.  Here,  10.5%  of  children  live  in  households  with  very  low  work  intensity, 
pointing  towards  employment  challenges  and  economic  hurdles  impacting  family 
dynamics and children's prospects. 

Describing the ECG target group in Romania 

The Romanian action plan confirms that all children at risk of poverty or social exclusion constitute the 
target group for the child guarantee. In addition, the following specific kinds of disadvantage experienced 
by  particular  categories  of  children  are  singled  out:  living  in  rural  areas  (48  %  of  child  population), 
experiencing disability, being Roma, being an underage mother (this is a larger group in Romania than 
elsewhere  in  the  EU),  living  on  the  street,  having  detained  parents,  being  a  victim  of  violence  or 
trafficking,  being  addicted  to  psychoactive  substances,  being  in  conflict  with  the  law.  Children  from 
migrant  families  are  also  mentioned  but  this  is  understood  predominantly  as  having  parents  who  left 
Romania to work in another EU country (as opposed to being third-country nationals settled in Romania), 
and children of families who have returned to Romania after a period abroad. 

31 

 
 
 
 
 
 
 
Some groups are at higher risk of poverty or social exclusion. This includes notably 
children whose parents  were born outside the EU, live in  a single-parent  household,  or 
have a parent who has disability. In 2024, 36.9% of children AROPE had at least one parent 
born outside the EU – an increase by 2.4 pp. since 2022.  In the same year, 24.1% of EU 
children  AROPE  lived  in  households  where  at  least  one  parent  had  a  disability,  a 
proportion which decreased by 3.6 pp. since 2022. Last but not least, 22.9% of EU children 
AROPE lived in single-parent households, in overwhelming majority of cases headed by 
women.  Research  shows  that  single  motherhood  has  become  increasingly  concentrated 
among women with lower level of formal education who have young children (and who 
possibly were single at childbirth). This implies a double disadvantage. The low-educated 
mothers not only possess fewer resources and face higher labour market uncertainty, but 
they more  frequently than their higher-educated  peers have younger-aged children  who 
need more care and resources (46). 

Graph 7: Shares (in %) of children AROPE with at least one parent born outside the EU, living in 
a single-parent household (47), and with at least one parent with a disability (48) in 2024 

80

70

60

50

40

30

20

10

0

EU BE BG CZ DK DE EE IE EL ES FR HR IT CY LV LT LU HU MT NL AT PL PT RO SI SK FI SE

at least one parent born outside the EU

single-parent household

at least one parent with a disability

Notes: No data available for Estonia. No share of children AROPE with at least one parent with a disability 
available for Luxembourg. Breaks in Denmark, Italy, and Portugal time series for share of children AROPE 
with at least one parent with a disability. Provisional data for Lithuania. 
Source: Eurostat (online data codes ilc_chg01, ilc_chg02, ilc_chg03, date of extraction – 03/12/2025). 

Focusing on individual Member States reveals significant variations. Sweden reports 
the highest share of children AROPE with at least one parent born outside the EU (70.2%), 
highlighting the multiplicity of challenges faced by immigrant families in socioeconomic 
contexts.  The  prevalence  of  child  poverty  in  single-parent  households  is  most  acute  in 
Lithuania, where 49.5% of children AROPE live in such situations. Conversely, Slovakia 
records  the  lowest  percentage  at  4.5%.  Regarding  children  AROPE  with  a  parent 

(46)  Berghammer, C., Matysiak, A., Lyngstad, T. H., & Rinesi, F. (2024). Is single parenthood increasingly 
an  experience  of  less-educated  mothers?  A  European  comparison  over  five  decades.  Demographic 
Research, 51, 1059–1094. https://www.jstor.org/stable/48797811  

(47)  Single-parent households are comprised of a parent (or a care giver) and one or more dependent children. 

(48)  In social statistics, such as EU-SILC, disability is proxied by the Global Activity Limitation Indicator 
(GALI), which identifies individuals as having a disability if they report being either severely limited or 
to  health  problems.  More  information: 
limited  (but  not  severely) 
https://ec.europa.eu/eurostat/statistics-explained/index.php?title=Glossary:Activity_limitation. 

in  usual  activities  due 

32 

 
 
 
 
 
experiencing disability, Belgium has the highest proportion at 47.6%. These insights allow 
to better understand the heterogeneity of factors influencing child poverty across Europe, 
underscoring the importance of targeted strategies to support children based on their unique 
social backgrounds. 

3.2 

Early Childhood Education and Care (ECEC) 

Equal access to quality and inclusive ECEC is central to breaking the transmission 
of  poverty  and  social  exclusion  and  securing  equal  opportunities  for  children  in  a 
disadvantaged situation. Research throughout the EU underscores notable improvements 
in educational outcomes, with higher grades, fewer class repetitions and increased rates of 
secondary school completion entailed by ECEC participation, especially among children 
in need. These enhanced educational achievements translate into improved employment 
prospects  and  increased  lifetime  earnings,  thereby  reducing  inequalities  while  boosting 
economic productivity (49). Furthermore, participation in quality ECEC programmes can 
be linked to better long-term health outcomes, including lower incidence of mental health 
issues,  obesity  and  reduced  substance  abuse (50).  As  a  result,  such  programmes 
demonstrate high benefit-cost ratios, e.g. 4.3 in case of ECEC in Spain (51). Nevertheless, 
while disadvantaged children would benefit most, their access is more likely to be hindered 
by limited availability and high costs of ECEC. 

Provision of ECEC plays an important role in poverty reduction. Studies demonstrate 
that publicly provided childcare services for children aged 0-3 (and sometimes also for the 
older pre-school age) facilitate parental employment, especially among mothers, thereby 
increasing household income and reducing poverty risk. (52) Full-day, publicly subsidised 
childcare  is  emphasised  as  key.  Analysis  across  22  European  countries  indicates  that 
investment  in  childcare is more strongly  associated with  lower  child poverty rates than 
cash transfers, even when controlling for employment rates and welfare structures (53). 

In  line  with  § 4  (a)  of  the  ECG  Recommendation,  children  in  need  should  be 
guaranteed effective and free access to high quality early childhood education and 
care (ECEC). Within the EU-level monitoring framework, the key indicator of progress 
in this regard is the share of children who participate in formal childcare for at least one 
hour per week. Reflecting the fact that in most European countries ECEC is provided in 

(49)  See e.g. Dumas, C., & Lefranc, A. (2010). Early schooling and later outcomes: Evidence from preschool 
extension in France. From parents to children: the intergenerational transmission of advantage, Russel 
Sage Foundation.  

(50)  See e.g. OECD, Policy outcomes of early childhood education and care: Performance at age 15, impact 
for disadvantaged children, effect on health and well-being, and mother employability, OECD, Paris, 
21 June 2017. 

(51)  See  e.g.  van  Huizen,  T.,  Dumhs,  L.,  &  Plantenga,  J.  (2019).  The  costs  and  benefits  of  investing  in 

universal preschool: Evidence from a Spanish reform. Child development, 90(3), e386-e406. 

(52)  Bäckman,  O.,  &  Ferrarini,  T.  ‘Combating  child  poverty?  A  multilevel  assessment  of  family  policy 
institutions and child poverty in 21 old and new welfare states.’ Journal of Social Policy, 39(2),2024, 
pp. 
https://www.cambridge.org/core/journals/journal-of-social-policy/article/combating-
child-poverty-a-multilevel-assessment-of-family-policy-institutions-and-child-poverty-in-21-old-and-
new-welfare-states/65486458F14101F77516602DB5A17003 accessed 1 November 2024. 

275-296. 

(53)  Nygård,  M.,  Lindberg,  M.,  Nyqvist,  F.,  &  Härtull,  C.  ‘The  role  of  cash  benefit  and  in-kind  benefit 
spending  for  child  poverty  in  times  of  austerity:  An  analysis  of  22  European  countries  2006–
pp.533-552. 
2015’. Social 
https://link.springer.com/article/10.1007/s11205-019-02126-8 accessed 30 October 2024. 

Research, 146, 

Indicators 

2019, 

33 

 
 
 
separate  types  of  settings  according  to  children’s  ages (54),  the  information  is  reported 
separately for children under 3 years old, and for those from age 3 years to the starting age 
of compulsory education at primary level. It is also broken down by economic status, i.e. 
collected separately for children from AROPE and non-AROPE households. Both the level 
of participation of children AROPE and the gap with children not AROPE provide proxy 
information on financial and non-financial barriers to ECEC.  

The ECEC participation rate of children AROPE below the age of 3 increased from 
22.7%  to  24.4%  in  the  EU  in  2024,  reflecting  modest  progress  towards  the  full 
coverage goal set by the ECG. Overall, an increase in the share of children participating 
in  ECEC was  recorded in 15  Member States.  Children  below the  age of  3 not  AROPE 
experience a markedly higher participation rate, i.e. 41.3% in 2022, rising to 42.4% in 2024 
at  EU  level.  Disparities  in  access  therefore  remain  evident.  The  gap  between  the 
participation  rates of  children AROPE  and those not  at  risk averaged 18.6 pp. in  2022, 
remaining broadly stable in 2024 (18 pp.). While the gap with children not AROPE also 
decreased in 11 Member States, children AROPE remain less likely to take part in formal 
childcare than their more advantaged peers in all but two Member States.  

Disparities among Member States in ECEC are very significant. Denmark was the top 
performer with 65.8% of children below 3 AROPE in ECEC (vs 69.6% of children below 
3  not  AROPE)  in  2024, demonstrating  high  access  levels  and  minimal  gaps.  Similarly, 
Sweden showed high participation rates (56.9% AROPE, 57.4% not AROPE) with a small 
gap,  indicating  successful  inclusion  initiatives.  France  and  Spain  experience  large  gaps 
between  the  participation  rates  of  children  AROPE  and  those  not  AROPE.  In  France, 
participation rates were for instance 28.8% for children AROPE compared to 67.2% for 
children  not  AROPE,  illustrating  a  very  significant  gap  (around  40  percentage  points). 
Significant  improvements were noted in  countries like Italy (an increase  by 11.9 pp. to 
26.6% in children AROPE participation) and Latvia (an increase by 16.1 pp. to 38.4%). 
Conversely,  countries  such  as  Bulgaria,  Luxembourg  and  Austria  showed  decreases  in 
ECEC  participation  of  children  AROPE  by  more  than  8  pp.  Out  of  all  Member  States, 
Slovakia  records  the  lowest  participation  of  children  below  3  years  in  formal  childcare 
(5.1% in 2024). Free childcare is guaranteed only for children aged 5 years and over (for 
whom participation is compulsory), while for younger ones tuition fees are charged and 
acknowledged  as  an  access  barrier.  This  points  to  significant  gaps  in  implementing  the 
recommendation to guarantee free and effective access to childcare for all children in need. 

Expanding early childhood education and care in Bulgaria 

In recent years, Bulgaria has prioritised expanding access and quality in early childhood education and 
care,  introducing  reforms  such  as  free ECEC  for  all  families  for  all  age  groups,  including  free  meals, 
compulsory  attendance  from  age  4,  and  a  National  Quality  Framework  with  associated  indicators  for 
monitoring. These developments are in the context of the government’s ambitious goals to expand the 
ECEC sector and achieve better integration of services for children from birth to age 7 (entry into primary 
school) and their families. 

(54)  Key  data  on  early  childhood  education  and  care  in  Europe  2025.  Eurydice  report,  p.  18. 

https://data.europa.eu/doi/10.2797/66224  

34 

 
 
 
 
Graph 8: share of children below 3 AROPE (and not AROPE) in ECEC one hour or more per week 
in 2024 (average of 2024 and 2023 shares in %), and in 2022 (average of 2022 and 2021 shares) 

90

80

70

60

50

40

30

20

10

0

EU BE BG CZ DK DE EE IE EL ES FR HR IT CY LV LT LU HU MT NL AT PL PT RO SI SK FI SE

AROPE 2022

AROPE 2024

Not AROPE 2022

Not AROPE 2024

Notes: no 2022 AROPE figures available for Denmark and no 2024 AROPE figures available for Romania. 
The average rate of two years (average of rates from reference year and reference year-1) is used instead of 
the annual rate available in ILC_CAINDFORM25B to increase the reliability of this indicator. 
Source: Eurostat (online data code ilc_caindform25b, date of extraction – 03/12/2025). 

Graph 9: share of children between 3 and compulsory primary schooling age AROPE (and not 
AROPE) in ECEC one hour or more per week (in %) in 2024, and 2022 

100

90

80

70

60

50

40

30

20

10

0

EU BE BG CZ DK DE EE IE EL ES FR HR IT CY LV LT LU HU MT NL AT PL PT RO SI SK FI SE

AROPE 2022

AROPE 2024

Not AROPE 2022

Not AROPE 2024

Notes: provisional data for Lithuania, low reliability of Denmark, Cyprus, Luxembourg, Hungary and Malta 
figures. 
Source: Eurostat (online data code ilc_caindform25b, date of extraction – 03/12/2025). 

35 

 
 
 
 
 
 
As regards children aged between three years old and the starting age of compulsory 
education, the average participation rate of children AROPE in the EU hovered from 
82.5% in 2022 to 82.4% in 2024. For children not at risk, the participation rate was higher, 
with an EU average of 91.2% in 2022, and 91.3% in 2024.  Although smaller than that for 
children  below  the  age  of  three,  the  persistent  gap  of  around  9  pp.  suggests  that  older 
children facing  poverty  or social exclusion risks still encounter difficulties in  accessing 
this service. As in the younger age group, the share of children AROPE participating in 
ECEC has increased in a majority of Member States (i.e. 17 of them). The gap with children 
not AROPE has decreased in 10 Member States. As a result, children AROPE are as likely 
as, or more likely than, their more advantaged peers to participate in formal childcare in 
six Member States. 

Differences  between  Member  States  remain  significant.  Denmark  and  Hungary 
emerged as top performers, with both countries achieving in 2024 full (100%) participation 
for children aged over three years, including those AROPE. Greece recorded considerable 
improvement, raising participation rates for children AROPE from 68.5% in 2022 to 93.0% 
in 2024. By contrast, Romania and Slovakia recorded some of the lowest participation rates 
for  children  AROPE  (both  below  60%).  Alongside  Croatia  and  Cyprus,  they  also  have 
showed some of the largest gaps with children not AROPE: in those countries, participation 
among children AROPE was more than 20 percentage points below that of children not 
AROPE.  Significant  changes  were  also  observed  in  Luxembourg,  where  the  ECEC 
participation rate decreased from 94.3% to 69.0% over the same period. 

Overall, participation in ECEC varies greatly across socioeconomic and age groups. 
Participation among children below three years of age remains low, especially for those at 
risk of poverty or social exclusion. Children aged three to the start of compulsory primary 
schooling  have higher participation  rates and experience smaller gaps between children 
AROPE and not AROPE. These disparities often reflect the design of legal entitlements 
and  the  start  of  compulsory  preschool,  with  better-performing  countries  usually  having 
earlier starting ages. For example, in Denmark and Sweden, where participation in ECEC 
among children AROPE below 3 years old is among the highest in the EU, there is no gap 
between the end of well-paid parental leave and the start of legal entitlement to childcare. 
Despite  notable  progress  in  increasing  participation  among  children  AROPE  and  in 
reducing gaps with other children in some countries, it is essential to continue efforts to 
lower the remaining financial and non-financial access barriers and ensure equitable access 
to quality ECEC for all children in need. 

The ECG Recommendation also includes extensive guidance on the provision of free 
and effective access  to  early  childhood education and care for children in need.  In 
particular, it guides the Member States to identify and address financial and non-financial 
barriers to participation in early childhood education and care (point (a)), provide learning 
support to children with learning difficulties to compensate for their linguistic, cognitive 
and  educational  gaps  (point  (c)),  adapt  facilities  and  educational  materials  of  early 
childhood education and care establishments and provide the most appropriate response to 
the  specific  needs  of  children  with  special  educational  needs  and  of  children  with 
disabilities,  using inclusive teaching  and learning methods; for this purpose ensure that 
qualified  teachers  and  other  professionals  are  available,  such  as  psychologists,  speech 
therapists,  rehabilitators,  social  workers  or  teaching  assistants  (point  (d)),  put  in  place 
measures to support inclusive education and avoid segregated classes in early childhood 
education  and  care  establishments;  this  may  also  include  giving  priority  to,  or,  when 
needed,  early  access  for,  children  in  need  (point  (e)),  and  provide  transport  to  early 

36 

 
 
childhood  education  and  care  (point  (i)).  Like  for  the  quantitative  analysis  of  the 
the  above 
participation 
recommendations was carried out separately for two age groups (respective questions and 
criteria for assessment are presented in Annex III).   

the  qualitative  assessment  of  compliance  with 

rate, 

Towards full spatial coverage by childcare  

The ‘Active Toddler programme’ is Poland’s flagship childcare investment under the ESF+ and the RRF. 
It aims to create over 100,000 new childcare places for children younger than three by 2029, with a specific 
focus on communes in which there have been no childcare facilities, with the ESF+  also covering the 
maintenance  of  all  places  for  three  years.  Managed  by  the  Ministry  of  Family  and  Social  Policy,  the 
programme  prioritises  municipalities  as  providers  and  includes  affordability  safeguards  for  non-state 
actors. It supports a broader reform to  streamline funding sources, establish stable long-term domestic 
financing and introduce binding minimum education and quality standards through amendments to the 
childcare law and the creation of a dedicated multiannual programme. 

Out of all the Member States, Sweden is closest to fully implementing the recommendation 
to provide free and effective access to inclusive ECEC for all children at risk of poverty or 
social exclusion. For the older age group, 525 hours of pre-school per year (i.e. 15 hours 
per week) are free of charge and free meals are provided. The excess hours are to be paid 
for, within limits. The last year of pre-school is compulsory and thus free of charge. Except 
for  some  reluctance  of  newly  arrived  immigrants  to  enrol  their  children,  no  other  non-
financial barriers have been identified. Lastly, children who need special support in their 
development due to physical, mental or other reasons are to be given the support or care 
that their special needs demand. For the younger age group, children whose parents are 
unemployed  or  on  parental  leave  with  another  child  are  to  be  provided  a  place  in  a 
preschool for at least three hours per day or 15 hours per week. The fees vary between 
municipalities and depend on the number of children in a family and household income 
and it is  free for children from  families  with  no earned income. This  provides free  and 
effective access  for the  most vulnerable children in  need, but  means that children from 
working poor families can face some financial barriers. 

In Bulgaria, all public childcare is free for both  age groups, including meals. However, 
quality of provided care, in particular in segregated settings can be sometimes assessed as 
unsatisfactory and capacity shortages persist in some urban areas. While there are several 
mechanisms providing financial support to families who have not been granted a place in 
the public sector aiming to offset associated costs and lack of capacity, lower attendance 
of  low-income  children  (especially  Roma)  can  still  be  observed.  Children  with  special 
educational needs and/or disabilities benefit from eased access to mainstream childcare, 
assignment of specialised staff and reduced group size. Non-discrimination rule is explicit 
in admission policies, quotas are used to improve diversity and additional national funding 
is used for improving physical accessibility. 

Slovakia and Croatia stand out as Member States with the lowest degree of compliance 
with ECG recommendations on free and effective access to ECEC for children in need. In 
Croatia, access to childcare is geographically unequal, with 24 municipalities offering it 
free of cost for all children, while others do not  have any facilities for the younger age 
group.  In  places  where  childcare  is  not  free,  cost  might  pose  a  significant  barrier (55). 

(55) According to 2025 Eurydice report, the average childcare fees in Croatia are higher than in 12 other EU 
to  ease  access  by  children  AROPE.  See 

in  place 

member  states,  but  measures  are 
https://data.europa.eu/doi/10.2797/66224  

37 

 
 
 
According  to  the  European  Social  Policies  Analysis  Network (56),  besides  geographical 
disparities, the non-financial barriers in access to childcare include lack of available places 
and long waiting lists, insufficient staff skills and cultural and personal perceptions and 
attitudes.  According  to  European  Commission’s  Working  Group  on  Early  Childhood 
Education  and  Care (57),  Croatia  faces  also  a  shortage  of  early  childhood  education 
teachers.  Croatia  partially  complies  with  the  recommendation  to  support  inclusive 
education  at  pre-school  level,  achieved  mainly  through  employment  of  assistants  for 
children with disabilities. An overview of the compliance with provisions dealing with free 
and effective access to early childhood education and care (ECEC), for both age groups, is 
presented in Table 2.  

(56)  Bežovan, G. Šućur, Z., and Babić, Z (2023) Access for children in need to the key services covered by 
the  European  Child  Guarantee  –  Croatia.  European  Social  Policy  Analysis  Network,  Brussels: 
European Commission,  https://ec.europa.eu/social/BlobServlet?docId=27115&langId=en.  

(57)  https://school-education.ec.europa.eu/en/discover/news/working-group-early-childhood-education-

and-care-latest-developments.  

38 

 
 
 
 
 
Table 2: Implementation of provisions of ECG Recommendation dealing with free and effective 
access to early childhood education and care (ECEC) 

r
o
f
s
s
e
c
c
a
e
e
r
f
y
l

e
v
i
t
c
e
f
f
e
(
d
e
s
s
e
r
d
d
a
s
r
e
i
r
r
a
b

l

i

a
c
n
a
n
F

i

i

,
)
n
o
s
u
c
x
e

l

l

i

a
c
o
s
r
o
y
t
r
e
v
o
p
f
o
k
s
i
r

t
a
n
e
r
d

l
i

h
c

l
l

a

,
d
n
a
m
e
d
t
e
m
n
u
o
n
(
d
e
s
s
e
r
d
d
a
s
r
e
i
r
r
a
b

.
o
.
y
3
r
e
d
n
u
n
e
r
d

l
i

h
c

l

i

a
c
n
a
n
i
f
-
n
o
N

,
)
s
r
e
i
r
r
a
b

l

i

a
c
h
p
a
r
g
o
e
g
r
o
n
s
e
g
a
t
r
o
h
s
f
f
a
t
s

.
o
.
y
3
r
e
d
n
u
n
e
r
d

l
i

h
c

t
r
o
p
p
u
s
o
t
e
c
a
p
n

l

i

s
e
r
u
s
a
e
m

i

t
n
e
c
i
f
f
u
S

,
s
e
s
s
a

l

i

c
d
e
t
a
g
e
r
g
e
s
d
o
v
a
d
n
a
n
o
i
t
a
c
u
d
e
e
v
i
s
u
c
n

l

i

r
o
f
s
s
e
c
c
a
e
e
r
f
y
l

e
v
i
t
c
e
f
f
e
(
d
e
s
s
e
r
d
d
a
s
r
e
i
r
r
a
b

.
o
.
y
3
r
e
d
n
u
n
e
r
d

l
i

h
c

l

i

a
c
n
a
n
F

i

i

,
)
n
o
s
u
c
x
e

l

l

i

a
c
o
s
r
o
y
t
r
e
v
o
p
f
o
k
s
i
r

t
a
n
e
r
d

l
i

h
c

l
l

a

e
g
A

l

o
o
h
c
S
y
r
o
t
a
d
n
a
M
o
t

.
o
.
y
3
d
e
g
a
n
e
r
d

l
i

h
c

,
d
n
a
m
e
d
t
e
m
n
u
o
n
(
d
e
s
s
e
r
d
d
a
s
r
e
i
r
r
a
b

l

i

a
c
n
a
n
i
f
-
n
o
N

,
)
s
r
e
i
r
r
a
b

l

i

a
c
h
p
a
r
g
o
e
g
r
o
n
s
e
g
a
t
r
o
h
s
f
f
a
t
s

e
g
A

l

o
o
h
c
S
y
r
o
t
a
d
n
a
M
o
t

.
o
.
y
3
d
e
g
a
n
e
r
d

l
i

h
c

t
r
o
p
p
u
s
o
t
e
c
a
p
n

l

i

s
e
r
u
s
a
e
m

i

t
n
e
c
i
f
f
u
S

,
s
e
s
s
a

l

i

c
d
e
t
a
g
e
r
g
e
s
d
o
v
a
d
n
a
n
o
i
t
a
c
u
d
e
e
v
i
s
u
c
n

l

i

e
g
A

l

o
o
h
c
S
y
r
o
t
a
d
n
a
M
o
t

.
o
.
y
3
d
e
g
a
n
e
r
d

l
i

h
c

Austria 
Belgium 
Bulgaria 
Croatia 
Cyprus 
Czechia 
Estonia 
Denmark 
Finland 
France 
Germany 
Greece 
Hungary 
Ireland 
Italy 
Latvia 
Lithuania 
Luxembourg 
Malta 
Netherlands 
Poland 
Portugal 
Romania 
Slovakia 
Slovenia 
Spain 
Sweden 

Partial 
Limited 
Wide 
n/a 
Partial 
Partial 
Partial 
Wide 
Wide 
Partial 
Partial 
Partial 
Wide 
Partial 
Partial 
Partial 
Partial 
Partial 
Limited 
n/a 
Partial 
Partial 
Partial 
Limited 
Partial 
Partial 
Full 
Source: European Commission, based on information from Child Guarantee Coordinators. See Annex III for 
methodological description.  

Partial 
Partial 
Full 
Limited 
Partial 
Limited 
Full 
Wide 
Full 
Limited 
Partial 
 Partial 
Full 
Partial 
Partial 
Wide 
Partial 
Full 
Partial 
Partial 
Partial 
Wide 
Partial 
Limited 
Wide 
Partial 
Wide 

Limited 
Partial 
Partial 
Limited 
Partial 
Partial 
Wide 
Wide 
Partial 
Partial 
Partial 
Partial 
Limited 
Partial 
Partial 
Partial 
Limited 
Partial 
Limited 
Limited 
Partial 
Partial 
Limited 
Limited 
 Wide 
Partial 
Full 

Partial 
Partial 
Partial 
Partial 
Partial 
Partial 
Partial 
Wide 
Partial 
Partial 
Partial 
Partial 
 Wide 
Partial 
Wide 
Partial 
Limited 
Partial 
Wide 
Partial 
Limited 
Partial 
Partial 
Partial 
Wide 
Wide 
Full 

Partial 
Limited 
Wide 
Wide 
Partial 
Wide 
Wide 
Wide 
Wide 
Wide 
Partial 
Partial 
 Partial 
Wide 
Partial 
Partial 
Wide 
Partial 
Wide 
Wide 
Partial 
Wide 
Wide 
Limited 
Partial 
Partial 
Full 

Wide 
Wide 
Full 
 Partial 
 Full 
Partial 
Wide 
Wide 
Full 
Wide 
Partial 
Partial 
Full  
Partial 
Wide 
Wide 
Partial 
Full 
Wide 
Wide 
Wide 
Full 
Partial 
Partial 
Wide 
Wide 
Full 

39 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
3.3 

Education for successful transition to adulthood 

is  pivotal 

to  address 

in  high  quality 

the 
inclusive  education 
Investing 
intergenerational transmission of poverty. While compulsory public education in all EU 
Member  States  is  nominally  free,  hidden  costs  such  as  school  supplies,  uniforms  and 
examination fees can create barriers to educational enrolment and completion, particularly 
for  low-income  families.  This  can  result  in  the  exclusion  of  disadvantaged  children, 
affecting their ability to engage fully in learning and causing potential emotional distress, 
including  on  their  self-esteem.  Removing  these barriers  by  guaranteeing  genuinely  free 
and fully accessible mainstream education reduces household deprivation related to school 
costs, enhances children's well-being and mitigates stigmatisation and bullying, ultimately 
improving school involvement, achievement, and attainment (58).  

Better education correlates with improved health outcomes, enhanced productivity 
and access to higher wages. The return on investment is substantial, with each additional 
year of education boosting a person’s income on average in Europe by about 7%. Research 
also  shows that countries with  a better-skilled population  recover faster from  economic 
shocks (59). Programmes aimed at reducing school dropouts have demonstrated high cost-
effectiveness, with benefit-to-cost ratios of up to three (60). These findings underscore the 
social  and  fiscal  value  of  inclusive  education  and  highlight  its  crucial  role  in  helping 
disadvantaged children overcome socioeconomic disparities and contributing to broader 
societal resilience. The OECD PISA’s data (61) were identified as relevant for assessing 
the  extent  to  which  children  in  need  are  guaranteed  an  effective  and  free  access  to 
education,  in  line  with  §7  of  the  ECG  Recommendation.  Included  in  the  monitoring 
framework, the EU-level target under the European Education Area (EEA) (62) covering 
the share of 15 years old who are low-achievers in reading, maths and science (63) provides 
proxy  information  to  grasp  the  overall  extent  to  which  children  in  need  have  access  to 
quality and inclusive education and are adequately supported. In addition, the monitoring 
framework  conveys  information  covering  more  specific  aspects,  such  as  early  school 
leaving, which Member States are recommended to prevent and reduce under the ECG. A 
forthcoming Council Resolution on the second cycle (2026-2030) of the EEA will feature 
new and updated EU-level targets and may, in line with the interim evaluation of the EEA, 

(58)  See e.g. Guio, A. C., Frazer, H., & Marlier, E. (2021). Study on the economic implementing framework 
of  a  possible  EU  Child  Guarantee  scheme  including  its  financial  foundation:  Second  phase  of  the 
Feasibility Study for a Child Guarantee (FSCG2). 

(59)   European  Commission:  Directorate-General  for  Education,  Youth,  Sport  and  Culture,  Investing  in 
2025, 

Publications 

European 

Union, 

Office 

the 

of 

education 
https://data.europa.eu/doi/10.2766/3311714. 

2025, 

(60)  See e.g. Catterall, J. S., ‘The societal benefits and costs of school dropout recovery,’ Education Research 

International, Vol. 2011, No. 1, 2011, Article 957303. 

(61)  The number of participating pupils in 2022 PISA survey exceeds 4,000 for most member states. For 
more information about data quality (e.g. sample size, response rate) see PISA 2022 Technical Report, 
https://www.oecd.org/en/publications/pisa-2022-technical-report_01820d6d-en.html.. 

(62) Council Resolution on a strategic framework for European cooperation in education and training towards 

the European Education Area and beyond (2021-2030) 2021/C 66/01. 

(63)  The  socioeconomic status is  assessed based on the ESCS  index of pupils. This index relies on three 
components:  parents’  highest  level  of  education,  parents’  highest  occupational  status  and  home 
ownership. The rationale for using these components is that socio-economic status relates to education, 
occupational  status  and  income.  As  no  direct  income  measure  is  available  in  the  PISA  data,  home 
ownership  has  been  used  as  a  proxy.  For  more  information,  see  PISA  2022  Technical  Report, 
https://www.oecd.org/en/publications/pisa-2022-technical-report_01820d6d-en.html. 

40 

 
 
 
include  an  equity  target  monitoring  the  share  of  learners  from  disadvantaged  socio-
economic backgrounds achieving a good level of basic skills (64).  

Graph 10: Shares (%) of low achievers among children with low and high socioeconomic status in 
2022 and 2018 

70,0

60,0

50,0

40,0

30,0

20,0

10,0

0,0

EU BE BG CZ DK DE EE IE EL ES FR HR IT CY LV LT LU HU MT NL AT PL PT RO SI SK FI SE

Low status 2018

Low status 2022

High status 2018

High status 2022

Note: No 2022 data available for Luxembourg. 
Source: OECD PISA. 

The  disadvantage  in  underachievement  among  children  from  low  socioeconomic 
status has deepened. In 2018, on average in the EU, 23.5% of children aged 15 years old 
from a low socioeconomic status background underachieved in reading, maths and science. 
In stark contrast, among EU children from a high socioeconomic status background the 
underachievement rate was just 4.2%, i.e. more than five times lower. By 2022 (the latest 
year  for  which  data  are  available),  the  situation  had  worsened,  with  the  share  of 
underachieving children from low SES backgrounds increasing to 28.8%. Among children 
with high socioeconomic status, the rate rose slightly to 4.7%, resulting in a wider gap of 
24.1 percentage points, or more than a sixfold disparity. This reflects a worrying trend, as 
the  gap  widened  by  4.8  percentage  points,  signalling  increased  educational  disparities 
between  the  two  socioeconomic  groups.  Notably,  in  20  Member  States,  advantaged 
students would already meet the 2030 EU-level target of lowering underachievement to 
below 15%, while in no country disadvantaged students are even close to that target (65).  

At  national  level,  the  incidence  of  underachievement  among  children  from  low 
socioeconomic status is decreased slightly in only three Member States, while in the 
others it remained stable or increased. The gap with children from high socioeconomic 

(64) European Commission: Directorate-General for Education, Youth, Sport and Culture, Interim evaluation 
of the 2021-2030 European Education Area strategic framework – Report from the Commission to the 
European Parliament, the Council, the European Economic and Social Committee and the Committee 
of 
2025, 
https://data.europa.eu/doi/10.2766/2668196. 

Publications 

European 

Regions, 

Union, 

Office 

the 

the 

of 

(65) European Commission: Directorate-General for Education, Youth, Sport and Culture, The twin challenge 
of equity and excellence in basic skills in the EU – An EU comparative analysis of the PISA 2022 results, 
Publications Office of the European Union, 2024, https://data.europa.eu/doi/10.2766/881521.  

41 

 
 
 
 
 
status  backgrounds  narrowed  in  only  three  Member  States.  In  2022,  the  share  of 
underachieving children with low socioeconomic status remained higher than that of their 
better-off  peers  in  all  Member  States.  Estonia  reported  the  lowest  incidence  of 
underachievement among children with low socioeconomic status (8.6%), making it the 
leading  performer,  while  Bulgaria  had  the  highest  share  at  62.6%.  As  regards  the  gap 
between children with low and high SES, Estonia also recorded the smallest disparity, at 
only a 6.7 pp. difference, while Romania exhibited the widest gap, at 48.8 pp., highlighting 
a pronounced educational  inequality.  The largest  increases in  underachievement among 
children with low socioeconomic status were observed in Cyprus and the Netherlands, with 
rises since 2018 of 16.3 pp. and 13.6 pp. respectively. Slovakia also recorded a significant 
increase of 11.3 pp. Conversely, Italy, Lithuania and Malta experienced slight reductions, 
of 0.6, pp., 0.9 pp. and 1.7 pp. respectively. 

Early school leaving (66) is declining albeit at a very slow pace. The EU average share 
of  early  leavers  from  education  and  training  stood  at  9.1%  in  2024,  continuing  a  slow 
decreasing trend of the last decade, and approaching the 2030 EU-level target of reducing 
it to below 9% (67). Since 2019, a decrease was observed in 16 Member States, with Malta, 
Bulgaria and Italy improving by over 5.0 pp. However, improvement was not universal 
and Germany recorded the highest increase in the incidence of early leaving, with the rate 
rising by 2.8 pp. from 10.3% to 13.1%. Overall, in 2025, most Member States reached the 
EU target set in the context of the European Education Area to reduce the incidence of 
early to less than 9.0%. Croatia is the best performer, with only 2.1%. Romania remains at 
the other end of the spectrum with 15.5%. Both underachievement and early school leaving 
highlight the need to address financial and non-financial barriers to ensure comprehensive, 
quality and inclusive education for all children, key to improving their life chances and 
bridging significant inequalities across socioeconomic divides. Particular attention should 
be paid to children with disabilities: in 2024, 44.2% of people aged 18 to 24 with a severe 
disability were  early leavers from education and training  in  the  EU. The share of  early 
leavers among young people with some disability was 17.1%, while it was only 8.0% for 
those without a disability (68). 

(66)  Defined as a situation where individuals aged 18-24 completed at most a lower secondary education and 

were not in further education or training. 

(67) Council Resolution on a strategic framework for European cooperation in education and training towards 

the European Education Area and beyond (2021-2030) 2021/C 66/01. 

(68) Source: Eurostat (online data code: edat_lfse_40). 

42 

 
 
 
 
Graph 11: Share of early leavers from education and training in 2019 and 2025 

18

16

14

12

10

8

6

4

2

0

EU BE BG CZ DK DE EE IE EL ES FR HR IT CY LV LT LU HU MT NL AT PL PT RO SI SK FI SE

2025

2019

Notes: No data for Luxembourg 2025. Low reliability of Croatia figures. A general break in series in 2021. 
Source: Eurostat (online data code sdg_04_10, date of extraction –23/04/2026) 

The reinforced Youth Guarantee plays an important role in reversing consequences 
of  early  school  leaving  and  offering  young  people  pathways  to  the  labour  market. 
There is evidence suggesting that the Youth Guarantee (YG), first introduced in 2013, and 
reinforced in 2020, has had a major transformative effect by structuring the ways youth 
unemployment and inactivity are addressed. At the same time, both the number of NEETs 
and youth unemployment have dropped significantly in recent years. Altogether, almost 57 
million young people started an offer of employment, continued education, apprenticeships 
and  traineeships  thanks  to  the  YG  schemes.  The  reinforced  Youth  Guarantee  is  a 
commitment by all Member States to provide all young people under the age of 30 with a 
good quality offer of employment, continued education, an apprenticeship or a traineeship 
within  a  period  of  four  months  after  they  become  unemployed  or  leave  education  and 
training. The target group of the YG, which is defined as youth aged between 15 and 29 
years, partially overlaps with the target group of the ECG, which covers vulnerable persons 
under 18 years of age.   

Community action for school attendance 

The Human Train project is a successful practice presented by the local authority of Guarda (Portugal) 
during  the  Call  for  Evidence.  By  involving  adults  from  the  community  (mediators)  in  accompanying 
children on their home-school journey, the initiative focuses on drastically reducing school absenteeism, 
especially in the Roma community. This proximity model facilitates the creation of trust bridges that the 
formal  system  alone  cannot  establish  and  is  an  example  of  how  school  integration  works  with  the 
community and not only for it. 

Overall, the ECG recommendations concerning provision of free and effective access 
to  education  are  widely  followed.  The  guidance  included  in  Art. 7 of  the  ECG 
Recommendation,  presented  in  the  previous  section  in  the  context  of  early  childhood 
education and care, applies also to primary and secondary education. In addition, Art. 7 (b) 
recommends that Member States take measures to prevent and reduce early school leaving, 
including by providing personalised guidance and strengthening cooperation with families. 
43 

 
 
 
 
Art  7 (g)  guides  them  to  ensure  provision  of  educational  materials,  including  digital 
educational tools, and Art. 7 (h) to provide high speed connectivity, digital services and 
adequate equipment necessary for distance learning to ensure access to educational content 
online, as well as to improve digital skills. The assessment of compliance with the above 
recommendations was carried out based on questions and criteria presented in Annex II.  
The overview of compliance on the above accounts is presented in Table 3. No Member 
State  fully  implements  the  four  provisions  (prevent  and  reduce  early  school  leaving, 
support inclusive education and avoid segregated classes, provide school materials for free 
and provide free transport to schools).  

In Finland, the Right to Learn programme helps to prevent achievement gaps and to realise 
equality in education. In addition, a recent amendment of the Basic Education Act aims to 
provide pupils with support for their learning as early as possible and on a low threshold. 
This  puts  Finland in full compliance with  recommendations on inclusive education and 
avoidance of segregated classes. In addition, all textbooks and most basic materials (pens, 
glue, scissors, etc.) needed in schools are provided for free, and if a household has a low 
income and is unable to buy items requested by the school (including schoolbags), social 
assistance  may  cover  these  costs.  All  IT  equipment  and  musical  equipment,  as  well  as 
extramural activities that are part of the curriculum, are free. This implies full compliance 
with the recommendation to provide school materials free of cost for children in need.  

Help to master the language 

In  Austria,  the  project  ‘Learning  Assistance’  accompanies  and  supports  children  who  need  learning 
support at school. The majority of the participating pupils have a migrant background. Accordingly, there 
is a particular focus on language support in German in all learning spaces, as in most cases German is 
learned as a second or foreign language  and pupils grow up in a  first-language non-German speaking 
household. The aim of the project is to promote the learning progress of children and young people in 
regular schooling, through extracurricular support. 

In Malta, school textbooks are given or lent free of charge to all students in compulsory 
education. There is  free  Internet  access  in  schools and dedicated  Wi-Fi access,  with  IT 
software provided to all primary school pupils, and additional measures to harness specific 
digital  skills.  Transportation  is  provided  free  of  charge  for  children,  who  attend 
kindergarten or compulsory schooling if they live more than 1 km away from the facility. 
Young children in pre-primary education receive supervised care during their commute. 

The lowest levels of implementation of the provision of effective and free access to high-
quality education for all children in need can be observed in Czechia and Slovakia. In both 
countries, the gaps concern above all Roma children. In Czechia, where the 2030 EU-level 
target to reduce early leaving from education and training has been already achieved for 
the general population, it is still widespread among Roma pupils. In Slovakia, incidence of 
ELET  increased  by  about  a  half  between  2021  and  2024,  reaching  9.8%.  While  some 
promising local initiatives such as community mediators are in place, distrust, a lack of 
training for teachers and their low expectations, communication gaps and a lack supporting 
measures (including assistants) are considered among main obstacles to inclusion of Roma 
children (69).  

(69) ERGO network report, 2025. 

44 

 
 
 
Table 3: Implementation of provisions of ECG Recommendation on free and effective access to 
education 

Sufficient 
measures to 
prevent and 
reduce early 
school leaving 

Partial 
Partial 
Wide 
Wide 
Partial 
Wide 
Wide 
Wide 
Partial 
Wide 
Limited 
Wide 
 Partial 
Full 
Wide 
Partial 
Partial 
 Wide 
Partial 
Wide 
 Wide 
Wide 
Limited 
Wide 
Wide 
Partial 
Wide 

Sufficient 
measures to 
support inclusive 
education and 
avoid segregated 
classes 
Partial 
Partial 
Partial 
Wide 
Partial 
Partial 
Wide 
Wide 
Wide 
Limited 
Partial 
Limited 
 Partial 
Wide 
Wide 
Partial 
Wide 
Wide 
Partial 
Wide 
Wide 
Wide 
Partial 
 Partial 
Wide 
Wide 
Partial 

Austria 
Belgium 
Bulgaria 
Croatia 
Cyprus 
Czechia 
Estonia 
Denmark 
Finland 
France 
Germany 
Greece 
Hungary 
Ireland 
Italy 
Latvia 
Lithuania 
Luxembourg 
Malta 
Netherlands 
Poland 
Portugal 
Romania 
Slovakia 
Slovenia 
Spain 
Sweden 

Free school 
materials 
provided for 
children in need 

Free transport to 
schools provided 
for children in 
need 

Wide 
Partial 
Wide 
Limited 
Wide 
Limited 
Wide 
Full 
Full 
Wide 
Partial 
Partial 
Full 
Partial 
Partial 
Wide 
Wide 
Full 
Full 
 Wide 
Limited 
Wide 
Limited 
Limited 
Wide 
Partial 
Full 

Wide 
Partial 
Wide 
Limited 
Partial 
n/a 
Full 
Partial 
Wide 
Limited 
Partial 
Partial 
 Limited 
Wide 
Limited 
Wide 
Partial 
Full 
Full 
Partial 
Partial 
Full 
 Full 
Limited 
Partial 
Wide 
Wide 

Source: European Commission, based on information from Child Guarantee Coordinators. See Annex III for 
methodological description.  

45 

 
 
 
 
 
 
 
3.4 

School-based activities 

An  important  part  of  learning  takes  place  by  means  of  sport,  leisure  or  cultural 
activities.  Such  activities  are  proven  to  be  beneficial,  especially  for  children  from 
disadvantaged backgrounds. Studies indicate positive impacts on educational outcomes, 
such  as  improved  academic  achievement  and  increased  engagement  with  school. 
Extracurricular activities foster cognitive development and enhance social skills, including 
teamwork and resilience which are essential for social integration. Health outcomes also 
benefit,  as  regular  participation  in  sports  and  other  physical  activities  reduces  risks 
associated  with  obesity  and  promotes  mental  well-being  (70).  These  activities  can  help 
bridge the gap for disadvantaged children, offering them equal footing with peers and thus 
improving  future  employability  and  social  inclusion.  However,  many  families  cannot 
afford such activities for their children, or their participation is hindered by a lack of proper 
infrastructure, poor accessibility or language problems. 

The  ECG  Recommendation  looks  at  educational  activities  also  beyond  the  school 
context. Points (j) and (k) in § 7 focus on guaranteed free and effective access to school-
based activities for children in need. In line with point (j), Member States should ensure 
equal  and  inclusive  access  to  school-based  activities,  including  participation  in  school 
trips, sport, leisure and cultural activities. Point (k) stresses the importance of a framework 
for cooperation of educational establishments, local communities, social, health and child 
protection services, families and social economy actors in provision of after school care 
and sport, leisure and cultural activities. Simultaneously, two indicators in the monitoring 
framework  for  the  European  Child  Guarantee  help  to  assess  the  extent  to  which  the 
Member States comply with the above recommendations. Collected every three years, the 
respective indicators monitor the shares of children below 16 who due to financial reasons 
are  unable  to  participate  in  regular  leisure  activities,  school  trips  and  school  events,  by 
AROPE status.  

As regards school-based activities, the share of children in need who suffer from an 
enforced lack decreased between 2021 and 2024. In 2021, 18.2% of children AROPE 
lacked access to school-based activities, compared to only 1.5% of children not AROPE, 
resulting in a significant gap of 17 pp. By 2024, a slight improvement was observed, with 
the  percentage  of  children  AROPE  without  access  decreasing  to  13.9%,  while  the 
percentage for children not AROPE hovered around 1.4%, thereby narrowing the gap to 
13  pp.  This  modest  positive  change  indicates  ongoing  efforts  to  enhance  access  to 
educational  opportunities  for  disadvantaged  children  across  the  EU,  even  amidst 
challenges. Examining national levels, the data highlights varied progress among Member 
States. A total of 14 countries recorded a decrease in the share of children AROPE lacking 
access to school-based activities, while 16 Member States succeeded in reducing the gap 
between AROPE and non-AROPE children. Yet the share of children AROPE suffering 
from a lack of access generally remains higher than that of children not AROPE. 

(70)  See  e.g.  European  Commission:  Directorate-General  for  Employment,  Social  Affairs  and 
Inclusion, Benefits of extracurricular activities for children – A focus on social inclusion and children 
from disadvantaged and vulnerable backgrounds, Publications Office, 2021. 

46 

 
 
 
 
 
Graph 12: Share of children (<16) AROPE who suffer from the enforced lack of access to school 
trips and school events that cost money (in %) in 2024 and 2021 

70

60

50

40

30

20

10

0

EU BE BG CZ DK DE EE IE EL ES FR HR IT CY LV LT LU HU MT NL AT PL PT RO SI SK FI SE

AROPE 2021

AROPE 2024

Not AROPE 2021

Not AROPE 2024

Notes: no data available for Germany in 2021, low reliability of Hungary figures in 2024, and figures not 
significant for children not AROPE in Denmark, Cyprus and Sweden. 
Source: Eurostat (online data code ilc_chmd05, date of extraction – 03/12/2025). 

Overall, Malta stands out with the lowest percentage of children AROPE lacking access to 
school-based  activities  (1%)  and  the  smallest  gap  between  children  AROPE  and  not 
AROPE  (below  1  pp.).  In  contrast,  Romania  reports  the  highest  incidence  of  children 
AROPE  lacking  access  (46.8%)  and  the  largest  gap  (41  pp.),  accentuating  significant 
inequalities  in  school-based  activity  access  between  different  socio-economic  groups. 
Since  2021,  notable  changes  have  been  observed  in  several  Member  States.  Hungary 
registered a reduction in the share of children AROPE lacking access by 21 pp. Conversely, 
Greece experienced the largest increase of 22 pp., illustrating areas where further effort is 
needed to improve access to school-based activities. 

As regards access to leisure activities, the EU share of children in need who suffered 
from enforced lack of access also decreased between 2021 and 2024. In 2021, 25.8% 
of children AROPE reported lacking access, compared to 3.2% of children not AROPE, 
establishing  a  significant  gap  of  23  pp.  By  2024,  there  was  an  improvement,  with  the 
percentage of children AROPE without access decreasing to 22.7%, while the percentage 
for children not AROPE also reduced slightly to 2.9%, thus narrowing the gap to 20 pp. 
This positive change suggests ongoing efforts across the EU to reduce barriers to leisure 
opportunities  for  disadvantaged  children.  At  the  national  level,  data  reveals  that  11 
countries recorded a decrease in the share of children AROPE lacking access to leisure 
activities, while 12 managed to reduce the gap between AROPE and non-AROPE children. 
Nevertheless, the share of children AROPE suffering from a lack of access remains higher 
than that of children not AROPE in all Member States. This has been confirmed by local 
authorities responding to the Call for Evidence (71). 

(71) 

https://ec.europa.eu/info/law/better-regulation/have-your-say/initiatives/17234-Strengthening-of-the-

European-Child-Guarantee/F33390104_en.  

47 

 
 
 
 
Graph 13: Share of children (<16) AROPE who suffer from the enforced lack of access to leisure 
activities (in %) in 2024 and 2021 

70

60

50

40

30

20

10

0

EU BE BG CZ DK DE EE IE EL ES FR HR IT CY LV LT LU HU MT NL AT PL PT RO SI SK FI SE

AROPE (2021)

AROPE (2024)

not AROPE (2021)

not AROPE 2024)

Note:  no  data  available  for  Germany  in  2021.Source:  Eurostat  (online  data  code  ilc_chmd06,  date  of 
extraction – 03/12/2025). 

Croatia stands out as a leading performer, with the lowest percentage of children AROPE 
lacking  access  to  leisure  activities  at  just  5.2%.  Conversely,  Greece  reports  the  highest 
incidence  of  AROPE  children  devoid  of  leisure  opportunities  at  a  concerning  68.7%. 
Croatia also demonstrates the smallest gap in leisure activity access between AROPE and 
non-AROPE  children,  with  a  difference  of  only  5  pp.,  showcasing  effective  national 
strategies aimed at bridging the divide in recreational opportunities. In contrast, Greece, 
too, exhibits the largest gap at 61 pp., highlighting barriers related to economic constraints 
and possibly limited local infrastructure, entailing significant inequalities in leisure activity 
access  between  different  socio-economic  groups.  Notable  changes  since  2021  include 
significant progress made by Hungary and Romania where the share of children AROPE 
without leisure access dropped by 16 and 12 pp. respectively, driven by initiatives focused 
on expanding inclusive cultural and sports programmes. On the other hand, Greece saw an 
increase in the share of children lacking access, rising by 33 pp. 

The  quantitative  assessment  of  access  to  school-based  and  leisure  activities  for 
children in need reveals progress yet highlights persistent disparities. Between 2021 
and 2024, the share of disadvantaged children unable to participate in school trips, school 
events and leisure activities showed a decline on average in the EU, demonstrating efforts 
to improve inclusivity. However, significant gaps remain, reflecting ongoing financial and 
non-financial  barriers.  Access  challenges  are  particularly  pronounced  in  countries  like 
Romania and Greece, underscoring the need for targeted interventions. Further efforts to 
ensure equal access remains critical for bridging disparities and enhancing opportunities 
for all children, given the essential role of school-based and leisure activities in children's 
education  and  overall  development,  offering  opportunities  for  learning  and  social 
engagement.   

48 

 
 
 
 
 
Supporting sport activities after classes  

The Patios  abiertos (Open  Playgrounds)  programme  in  Spain  revitalises  public  school  playgrounds. 
During  non-school  hours  (afternoons,  weekends,  and  summers),  they  function  as  public,  safe,  and 
supervised recreational spaces. Primarily aimed at providing urban areas with more green recreational 
spaces, the initiative increases the offer of quality educational leisure, prioritising vulnerable educational 
environments. The goal is to reach 300,000 children. 

Progress on cooperation arrangements to provide after school care and sport, leisure 
and cultural activities has been less evident. Providing every child and adolescent with 
opportunity  to  engage  in  at  least  one  pleasant  hobby  has  been  included  in  the  2023-27 
government programme in Finland, based on a national model for organisation of leisure 
activities that has been in place since 2019. In Slovenia, a measure on safe and stimulating 
learning environments facilitates access to cultural institutions and artists visits to schools. 
In France, more than 200 communes participate in the La Cité educative initiative, which 
facilitates  cooperation  between  various  local  services  (culture,  sport,  social  inclusion, 
healthcare), but also with the private sector.  

Table 4: Implementation of provisions of ECG Recommendation on school-based activities and 
organised leisure for children in need 

Inclusive access to school-based 
activities ensured for children in need, 
including participation in school trips 
and sport, leisure and culture 

Framework for cooperation to provide 
after school care and opportunities to 
participate in sport, leisure and culture 

Austria 
Belgium 
Bulgaria 
Croatia 
Cyprus 
Czechia 
Estonia 
Denmark 
Finland 
France 
Germany 
Greece 
Hungary 
Ireland 
Italy 
Latvia 
Lithuania 
Luxembourg 
Malta 
Netherlands 
Poland 
Portugal 
Romania 
Slovakia 
Slovenia 
Spain 
Sweden 

Partial 
Partial 
Limited 
Partial 
Partial 
Partial 
Wide 
Wide 
Full 
Wide 
Partial 
Partial 
Partial 
Wide 
Limited 
Partial 
Wide 
Partial 
Wide 
Wide 
Wide 
Partial 
 Partial 
Partial 
Wide 
Partial 
Full 

Full 
Limited 
Partial 
Limited 
Partial 
Partial 
Wide 
Wide 
Full 
Wide 
Partial 
Partial 
Partial 
Partial 
Partial 
n/a 
Wide 
Wide 
 Wide 
Wide 
n/a 
Wide 
Limited 
Limited 
Wide 
Partial 
Wide 

Source: European Commission, based on information from Child Guarantee Coordinators. See Annex III for 
methodological description.  

49 

 
 
 
 
3.5 

School meals 

Inclusive  school  meal  programmes  are  an  investment  with  high  returns.  They 
contribute to improved educational outcomes of children, enhancing focus and academic 
performance, facilitating labour market integration at a later stage in life (72). The provision 
of nutritious meals also instils beneficial eating habits that can lead to long-term health 
improvements,  reducing  present  and  future  healthcare  costs  associated  with  non-
communicable  diseases.  These  programmes  level  the  playing  field  for  disadvantaged 
children by making healthy food choices accessible, thus narrowing socio-economic gaps 
in  dietary  intake.  Moreover,  school  meal  programmes  can  promote  environmental 
sustainability  by  incorporating  local  and  sustainable  food  sources,  thus  supporting 
agriculture. For every euro invested in school meal programmes, the return can amount to 
no less than seven euros considering the positive impact on children in need, reflecting 
substantial  economic  and  social  value,  and  fostering  a  healthier,  more  equitable 
society (73). 

For many children in need school meals are the key source of necessary nutrients. In 
line with § 4 (a) and § 7 (f) of the ECG Recommendation, Member States should provide 
children  in  need  with  at  least  one  healthy  meal  each  school  day.  Within  the  EU-level 
monitoring  framework,  the  key  indicators  of  progress  in  this  regard  are  the  shares  of 
children (aged under 16 years) who suffer from enforced lack of access to fresh fruits and 
vegetables  (see  Graph  14) and to  a  meal  with  meat,  chicken  or  fish  or  a  vegetarian 
equivalent at least once a day (Graph 15). In the absence of indicators allowing to more 
closely  monitor  children  in  need’s  access  to  school  meals,  both  the  share  of  children 
AROPE who suffer from such lack, and the gap with children not AROPE, provide proxy 
quantitative information on financial and non-financial barriers in access. In 2021, across 
the EU 8.4% of children AROPE did not have fresh fruits and vegetables once a day due 
to  financial  reasons.  For  children  not  AROPE,  this  figure  was  twenty-one  times  lower 
(0.4%). By 2024, the proportion of children AROPE who faced this hardship decreased to 
7.4%, while the figure for children not AROPE rose slightly to 0.5%, narrowing the gap to 
6.9 pp., i.e. fourteen times. This  indicates a positive change but  leaves plenty  room for 
further improvement. 

The largest improvements took place in the most disadvantaged countries. The share 
of  children  AROPE  suffering  from  this  lack  remains  higher  than  that  of  children  not 
AROPE  in  all  Member  States.  Ireland,  Sweden  and  Denmark  reported  the  lowest 
percentage of children not able to afford fresh fruits and vegetables each day, respectively 
at 0.9%, 1,3% and 1.6%, making them the best performers in 2024. Ireland and Sweden 
also  have  the  smallest  gap  between  children  AROPE  and  not  AROPE  –  below  1.2  pp. 
Conversely, Slovakia, Bulgaria and Hungary reported the highest percentages, at 29.6%, 
28.7%  and  25.8%  respectively.  These  three  countries  recorded  also  three  widest  gaps 
(above 24 pp.), indicating substantial inequality in access to fresh fruits and vegetables. 
The  most  notable  improvements  in  access  among  children  AROPE  were  observed  in 
Hungary and Bulgaria, where the percentages dropped by 12.7 and 9.9 pp. respectively in 
2024  compared  to  2021.  In  contrast,  Slovakia  and  Cyprus  experienced  considerable 

(72)  See  e.g.  School  Meals  Coalition’s  Research  Consortium, The  current  state,  benefits,  and  exemplary 
models of school meal programmes in the European Union, 2025 Insights from a new report on school 
meal programmes in the EU - Employment, Social Affairs and Inclusion. 

(73)  See  e.g.  Lundborg,  P.,  Rooth,  D.  O.,  &  Alex-Petersen,  J.  (2022).  Long-term  effects  of  childhood 
nutrition: evidence from a school lunch reform. The Review of Economic Studies, 89(2), 876-908. 

50 

 
 
 
increases in the percentage of children AROPE lacking access, with rises by respectively 
9.5 and 7.4 pp. (74). 

Graph 14: Share of children (<16) AROPE who suffer from the enforced lack of access to fresh 
fruits and vegetables at least once a day (in %) in 2024 and 2021 

40

35

30

25

20

15

10

5

0

EU BE BG CZ DK DE EE IE EL ES FR HR IT CY LV LT LU HU MT NL AT PL PT RO SI SK FI SE

AROPE (2021)

AROPE (2024)

Not AROPE (2021)

Not AROPE (2024)

Notes: No data available for Germany in 2021. Figures not significant for children not AROPE in Denmark, 
Netherlands, Portugal and Slovenia in 2024 and in Denmark, Estonia, Ireland, Croatia, Austria, Portugal and 
Sweden in 2021. 
Source: Eurostat (online data code ilc_chmd07, date of extraction – 03/12/2025). 

Lack  of  access  to  proteins  affects  mostly  children  in  need.  In  2021,  the  average 
proportion of children AROPE in the EU who were unable to have a meal containing meat, 
chicken, fish, or a vegetarian equivalent at least once a day due to financial constraints was 
11%.  For  children  not  AROPE,  this  number  was  almost  sixteen  times  lower  (0.7%), 
resulting  in  a  gap  of  10.3  percentage  points  between  the  two  groups.  By  2024,  the 
proportion of children AROPE who faced this challenge fell to 10.2%, while the figure for 
children not AROPE rose slightly to 0.8%, reducing the gap to 9.4 percentage points (i.e. 
the difference in incidence is now less than thirteen times). At national level, decrease in 
the share of children AROPE lacking access is recorded in 12 Member States, just like the 
gap with children not AROPE. Yet the share of children AROPE suffering from this lack 
remains higher than that of children not AROPE in all Member States, as is the case for 
access to fresh fruits and vegetables. In terms of children AROPE's lack of access to meals 
with  meat,  chicken,  fish,  or  vegetarian  equivalents,  Denmark  reported  the  lowest 
percentage at  0.3%, making  it the best  performer, and followed by Poland and Sweden 
(0.8%  of  children  AROPE  lacking  access).  All  these  three  countries  also  showed  the 
smallest  gaps  between children AROPE  and not AROPE  (less  than 1 pp.). Conversely, 
Greece and Slovakia reported the highest percentages, at 33.6% and 30.6% respectively, 

(74) As regards Slovakia, the government plenipotentiary for Roma communities flagged in response to the 
Call for Evidence that “it is necessary to explicitly emphasize the provision of at least one free hot meal 
as part of school programs. The current wording refers to a nutritious daily meal but does not specify its 
quality  or  form,  which  could  lead  to  differing  interpretations  and  weaken  the  measures  impact  on 
https://ec.europa.eu/info/law/better-regulation/have-your-
children’s 
say/initiatives/17234-Strengthening-of-the-European-Child-Guarantee/F33389087_en. 

nutrition.” 

healthy 

51 

 
 
 
 
 
 
as well as the largest gaps between the two groups (around 30 pp.), indicating substantial 
inequality in access to protein-rich meals. The most notable improvements in access among 
children AROPE were observed in Hungary, Romania and Bulgaria, where percentages 
dropped by 13.1, 9.6 and 8.2 percentage points respectively since 2021. In contrast, Greece 
and Germany  experienced considerable increases  in  the percentage of  children AROPE 
lacking access, with rises of 18.9, and 11.3 percentage points respectively. 

Graph 15: Share of children (<16) AROPE who suffer from the enforced lack of access to a meal 
with meat, chicken or fish at least once a day (in %) in 2024 and 2021 

40

35

30

25

20

15

10

5

0

EU BE BG CZ DK DE EE IE EL ES FR HR IT CY LV LT LU HU MT NL AT PL PT RO SI SK FI SE

AROPE (2021)

AROPE (2024)

Not AROPE (2021)

Not AROPE (2024)

Notes: No data available for Germany in 2021. Figures not significant for children not AROPE in Denmark, 
Netherlands,  Portugal,  Slovenia  in  2024,  in  Austria,  Croatia,  Denmark,  Estonia,  Ireland,  Portugal  and 
Sweden in 2021 and for children AROPE in Finland in 2021. 
Source: Eurostat (online data code ilc_chmd07, date of extraction – 03/12/2025) 

School  meals  are  available  mostly  in  the  primary  schools,  leaving  older  children 
without structured provision. A qualitative assessment of compliance with provisions of 
the ECG recommendation concerning free and effective access  to  healthy school  meals 
shows differences between the pre-school, primary and secondary education levels. While 
several Member States have universal free meal schemes in place, those do not cover all 
age  groups.  Luxembourg  and  Croatia  have  recently  introduced  universal  free  meal 
schemes in primary schools. In Luxembourg, this is accompanied by targeted schemes at 
pre-school and secondary level (low take-up rate in the latter). In Croatia, at pre-school 
level meals are offered for free only in places where childcare is free of charge, or to the 
children from families receiving the guaranteed minimum benefit or the child allowance. 
At secondary school level, due to budget constraints there are no targeted mechanisms to 
offset the costs of food for children in need. 

52 

 
 
 
  
 
 
The highest level  of compliance with  the recommendation to  provide school  meals  has 
been recorded for Finland where meals are provided for free for all age groups. Other good 
performers include Sweden, which runs a universal free meal scheme in primary schools, 
and 238 out of 290 municipalities have it also in secondary schools. Furthermore, meals 
are  provided  free  of  additional  costs  at  the  pre-school  level.  In  Ireland,  the  Hot  School 
Meal  programme  has  been  available  to  all  primary  schools  since  September  2025.  In 
Estonia meals in primary and secondary schools are mostly funded by national subsidies, 
with local governments covering remaining cost. Where parents must pay a small fee, full 
compensation  can  usually  be  applied  for.  Some  schools  also  offer  free  breakfast  and 
afternoon snacks for those in need. On the pre-school level, access to free meals varies 
between municipalities. In Slovenia, meals are provided at no additional cost as part of the 
free pre-school programmes, and in primary and secondary schools they are subsidised or 
covered completely for low-income pupils (with lower share of beneficiaries in secondary 
schools).  Slovenia plans to roll out free school meals for all children by 2027. Given that 
ECG Recommendation is focused on children in need and does not require universal free 
provision  of  school  meals,  another  fully  compliant  Member  State  is  Malta,  where 
Scheme 9  offers  free  nutritious  lunches  for  low-income  children  starting  from  early 
childhood education. 

Table 5: Implementation of provisions of ECG Recommendation on free and effective access to 
healthy meal each school day 

Healthy meal provided 
for free to children in 
need each school day 
(pre-school) 
Limited 
Limited 
Full 
Partial 
Wide 
Limited 
Wide 
Wide 
Full 
Limited 
Partial 
Nil 
Full 
Partial 
Partial 
Partial 
Full 
Wide 
Full 
Partial 
Partial 
Full 
Partial 
Wide 
Full 
Limited 
Wide 

Healthy meal provided 
for free to children in 
need each school day 
(primary schools) 
Partial 
Limited 
Limited 
Full 
Wide 
Limited 
Full 
Partial 
Full 
Partial 
Partial 
Partial 
Wide 
Full 
Limited 
Wide 
Wide 
Wide 
Full 
Wide 
Partial 
Wide 
Partial 
Wide 
Full 
Partial 
Full 

Healthy meal provided 
for free to children in 
need each school day 
(secondary schools) 
Partial 
Nil 
Nil 
Nil 
Wide 
Limited 
Full 
Limited 
Full 
Partial 
Partial 
Partial 
Limited 
Limited 
Limited 
Limited 
Wide 
Wide 
Full 
Wide 
Partial 
Wide 
Limited 
Wide 
Wide 
Partial 
Wide 

Austria 
Belgium 
Bulgaria 
Croatia 
Cyprus 
Czechia 
Estonia 
Denmark 
Finland 
France 
Germany 
Greece 
Hungary 
Ireland 
Italy 
Latvia 
Lithuania 
Luxembourg 
Malta 
Netherlands 
Poland 
Portugal 
Romania 
Slovakia 
Slovenia 
Spain 
Sweden 

Source: European Commission, based on information from Child Guarantee Coordinators. See Annex III for 
methodological description.  

53 

 
 
 
3.6  Healthcare 

Children from disadvantaged backgrounds are likely to encounter barriers in access 
to healthcare services, including because of low health awareness among their parents. 
This  limits  children’s  participation  in  disease  prevention  and  health  promotion 
programmes, exacerbating health disparities. Poorer health and longer school absences due 
to sickness negatively impact educational outcomes. Early interventions, like vaccination, 
health  check-ups  and  parenting  support,  are  crucial  for  mitigating  these  risks  and 
promoting  overall  development.  Meanwhile,  public  health  measures  and  immunisation 
programmes  yield  substantial  benefits  through  reductions  in  morbidity,  hospitalisations 
and  use  of  prescription  drugs (75).  Significant  academic  benefits  specifically  for 
disadvantaged  children  have  also  been  identified,  illustrating  the  profound  impact  of 
ensuring  access  to  comprehensive  healthcare  services (76).  Overall,  every  euro  spent  on 
health-related  programmes  for  children  brings  an  estimated  return  of  three  euros (77). 
Prioritising accessibility of free healthcare for children in need is essential for fostering 
equitable development and enhancing long-term societal benefits. In line with § 4 (a) of 
the ECG Recommendation, Member States should provide children in need with effective 
and free access to healthcare. 

Since 2021, the share of children reporting ‘very good’ health decreased both among 
those in need and those who were not at risk of poverty or social exclusion. In the EU-
level monitoring framework, the key indicators of progress regarding provision of free and 
effective access to healthcare are the share of children (aged under 16 years) who report a 
‘very good’ health status and the share of children from the same age group with unmet 
needs  for  medical  examination  or  treatment.  The  level  of  the  shares  and  the  gaps  with 
children not AROPE provide proxy quantitative information as regards financial and non-
financial  barriers  to  healthcare.  In  addition,  contextual  indicators  from  the  monitoring 
framework convey information covering more specific aspects, such as mental healthcare 
to  which  Member  States  are  recommended 
the  ECG 
Recommendation. In 2021, the share of children AROPE with very good health outcomes 
was 62.3%. For children not AROPE, this number was 70.3%, implying a gap of 8 pp. By 
2024, the proportion of children AROPE who felt to be in very good health decreased faster 
than that of children not AROPE, respectively reaching 57.4% and 67.0%, widening the 
gap by one-fifth  to 9.6  pp. A decrease in  the health outcomes of children AROPE  was 
recorded in 18 out of the 27 EU Member States, with 12 Member States showing also an 
increased gap. Overall, in 2024 children in need were more likely to assess their state of 
health as ‘very good’ than their more affluent peers in only two Member States.   

to  facilitate  access 

in 

(75)  See e.g. Guo, J. J., Wade, T. J., Pan, W., & Keller, K. N. (2010). School-based health centers: Cost–
benefit analysis and impact on health care disparities. American Journal of Public Health, 100(9), 1617-
1623; Zhou, F., Shefer, A., Wenger, J., Messonnier, M., Wang, L. Y., Lopez, A., ... & Rodewald, L. 
(2014). Economic evaluation of the routine childhood immunization program in the United States, 2009. 
Pediatrics, 133(4), 577-585; Thomas, G. (2018). A cost-benefit analysis of the immunisation of children 
against respiratory syncytial virus (RSV) using the English Hospital Episode Statistics (HES) data set. 
The European Journal of Health Economics, 19(2), 177-187. 

(76)  See  e.g.  Carneiro, P., Cattan, S., & Ridpath, N. (2024). The short-and medium-term impacts of Sure 

Start on educational outcomes (No. R307). IFS report. 

(77)  Report on the effectiveness of child benefits in the EU by Rand Europe, forthcoming. 

54 

 
 
 
Graph 16: Share of children (<16) AROPE with “very good” health (in %) in 2024 and 2021 

100

90

80

70

60

50

40

30

20

10

0

EU BE BG CZ DK DE EE IE EL ES FR HR IT CY LV LT LU HU MT NL AT PL PT RO SI SK FI SE

AROPE (2021)

AROPE (2024)

Not AROPE (2021)

Not AROPE (2024)

Notes: low reliability of Germany figures in 2021. 
Source: Eurostat (online data code ilc_hch12a, date of extraction – 03/12/2025). 

Greece emerges as the best performer with 95% of children AROPE reporting ‘very good’ 
health – a share marginally higher than among children not AROPE. Conversely, Latvia is 
the worst performer, with only 21.2% of children AROPE enjoying very good health in 
2024,  indicating  significant  challenges  in  health  outcomes.  When  analysing  the  gap 
between children AROPE and not AROPE, Greece is also the only Member States with 
Sweden  where  the  share  of  healthy  children  AROPE  is  larger  than  that  of  children  not 
AROPE.  Meanwhile,  Hungary  presents  one  of  the  most  significant  gaps  at  19  pp., 
highlighting pressing inequality in health standards. Italy witnessed significant declines in 
health status declared by children AROPE, with a drop of 20.4 pp. between 2021 and 2024. 
The  opposite  trend  was  observed  in  Portugal  where  the  share  of  children  AROPE  who 
consider their health to be very good rose in the same period by 11.7 pp.  

The  incidence  of  unmet  medical needs  is  closely  linked  to  children’s health  status. 
Besides increase in the share of children with very good health, Portugal also recorded a 
significant decrease in the rate of unmet needs for medical examination or treatment for 
children  AROPE,  dropping  by  3  pp.  between  2021  and  2024,  and  thus  supporting  the 
improvement in health status observed. Similarly, Greece and Croatia exhibit among the 
highest shares of children AROPE with good health status alongside the lowest incidence 
of unmet medical needs, respectively at 2.7 and 0%, both levels lower than the EU average 
of  4.9%.  Unlike  health  status,  the  gap  between  the  share  of  children  AROPE  and  not 
AROPE with unmet medical needs is, however, much smaller and was reduced from 3 to 
2 pp. in 2024. Hence, while few barriers to general medical support may persist and are 
still to  be overcome, other factors may underpin  the deterioration of children in  need’s 
health outcomes, such as gaps in access to mental health support.  

While  mental  health  has  become  a  pressing  issue  for  children  and  young  people, 
access  to  dedicated  services  across  the  EU  remains  challenging.  Already  before  the 
Covid-19  pandemic,  mental  healthcare  was  among  health  services  in  shortest  supply, 

55 

 
 
 
 
resulting  in  long  waiting  lists (78).  Those  barriers  were  aggravated  during  lockdowns, 
which was reflected in a sharp increase in incidence of feeling low more than once a week 
among 13-year-old children (what is one of the agreed indicators of the EU Monitoring 
Framework). Among children with low family affluence, the respective share increased 
from  21% in  2018 to  29% in  2022. Similar change occurred among  children with  high 
family affluence, resulting with a persistent gap of 4 pp. between the two groups (see Graph 
17). The insufficient availability of mental health support carries a tangible human cost: 
among teenagers (aged 15-19 years) across the EU, suicide is the reported cause of about 
one in six deaths (79). 

Graph 17: Share of children aged 13 with low (and high) family affluence who felt low more than 
once a week (in %) in 2022, and 2018 

60

50

40

30

20

10

0

EU BE BG CZ DK DE EE IE EL ES FR HR IT CY LV LT LU HU MT NL AT PL PT RO SI SK FI SE

Low family affluence (2018)

Low family affluence (2022)

High family affluence (2018) High family affluence (2022)

Note: No 2018 data available for Cyprus. 
Source: WHO HBSC. 

In summary, the quantitative assessment of children in need's access to healthcare 
brings mixed results. Between 2021 and 2024, there was a decline in the share of children 
AROPE who reported very good health, and the gap between them and their more affluent 
peers  widened.  However,  countries  like  Greece  and  Portugal  showcase  promising 
improvements in children's health outcomes, reflected in lower incidence of unmet medical 
needs. Barriers hindering access to more specific types of healthcare are a concern. This 
concerns  for  example  mental  healthcare,  as  mental  health  outcomes  of  children  have 
deteriorated since 2018.  

Universal  health  screening  programmes  and  efficient  vaccination  programmes  are 
key  elements  of  preventive  healthcare,  which  is  the  focus  of  ECG  and  earlier  EU 
policy instruments. The detailed guidance to Member States concerning provision of free 
and effective access to quality healthcare for children in need is presented in § 8 of the 

(78)  https://health.ec.europa.eu/document/download/f68337fe-578d-425b-9b79-

7ff84dc6f0dc_en?filename=2019_companion_en.pdf.  

(79)  Accidents,  including  transport  accidents,  account for  about  one  third  of  all  teenage  deaths,  while  all 
kinds of diseases for less than a half. Source: Eurostat, https://doi.org/10.2908/HLTH_CD_ARO.  

56 

 
 
  
 
ECG  Recommendation.  The  Member  States  are  recommended  to:  (a)  facilitate  early 
detection and treatment of diseases and developmental problems, including those related 
to mental health, ensure access to periodic medical, including dental and ophthalmology, 
examinations and screening programmes; ensure timely curative and rehabilitative follow-
up,  including  access  to  medicines,  treatments  and  supports,  and  access  to  vaccination 
programmes; (b) provide targeted rehabilitation and habilitation services for children with 
disabilities;  and  (c)  implement  accessible  health  promotion  and  disease  prevention 
programmes targeting children in need and their families, as well as professionals working 
with  children.  In  this  context,  it  is  also  relevant  to  recall  that  the  2018  Council 
Recommendation on strengthened cooperation against vaccine-preventable diseases called 
upon the Member States to strive towards eliminating measles. To this end, the vaccination 
coverage rate should be 95% by 2020, with two doses of the vaccine for the targeted child 
population. In addition, the recommendation calls for routine checks of vaccination status 
and  regular  opportunities  to  vaccinate  across  different  stages  of  life,  for  example  when 
beginning  (pre-)  school (80).  Compliance  with  the  above  recommendations  has  been 
assessed on six dimensions. Annex III presents the investigated aspects, definitions of full 
compliance and performance by each Member State. 

Integrating databases and services 

In Estonia, the automated data exchange between health and social systems allows to support children 
with persistent health conditions and their families by enabling earlier identification and quicker access 
to services. The system, launched in December 2025 alerts local child protection workers as soon as a 
child´s need for ongoing support is recorded in the health information system, allowing assessment and 
proactive outreach. Digital solutions have proven to significantly improve the quality and timeliness of 
services offered. 

Much remains to be done to fully guarantee free and effective access to healthcare for 
all  children  in  need.  While  no  Member  State  is  fully  compliant  on  all  six  accounts 
(screening for physical diseases and developmental problems, vaccinations, early detection 
of  mental  health  problems,  free  prescription  medicines,  rehabilitation  and  habilitation 
services for children with disabilities, health promotion programmes targeted at vulnerable 
children),  Luxembourg  and  Sweden  do  so  on  two  accounts  each.  Since  a  long  time, 
Luxembourg has recorded very high (95% to 99%) vaccination rates against Diphtheria-
Tetanus-Pertussis,  Haemophilus  influenzae  B,  Hepatitis  B,  Measles,  Pneumococcal 
disease, Polio and Rubella. 89% of one-year-olds are also vaccinated against Rotavirus, 
what is among the highest rates in the EU. Moreover, a new social paediatrics service has 
been  implemented  and  a  comprehensive  (general  health,  hearing,  vision,  dental)  free 
screening programmes are available for all children in need, discussed in detail in the first 
progress report. In Sweden, comprehensive (general health, hearing, vision, dental) free 
screening programmes are available for all children in need at post-natal, first years, and 
school years stages, until the age of 18 years and with a strong outreach component. The 
first  progress  report  (2024)  lists  also  several  measures  that  had  been  implemented  to 
facilitate  early  detection  and  treatment  of  diseases.  Prescription  medicines  are  free  of 
charge  for  all  children  below  the  age  of  18.  For  a  full  overview  of  compliance  with 
recommendations on free and effective access to healthcare, see Table 6. 

(80)  Council Recommendation of 7 December 2018 on strengthened cooperation against vaccine-preventable 

diseases.  

57 

 
 
 
Table 6: Implementation of provisions of ECG Recommendation on free and effective access to 
healthcare 

e
t
a
t
i
l
i

c
a
f
o
t
s
e
r
u
s
a
e
m

i

t
n
e
c
i
f
f
u
S

f
o
t
n
e
m
t
a
e
r
t
d
n
a
n
o
i
t
c
e
t
e
d
y
l
r
a
e

l

l

a
t
n
e
m
p
o
e
v
e
d
d
n
a
s
e
s
a
e
s
d

i

l

s
m
e
b
o
r
p

d
e
e
n
n

i

n
e
r
d

l
i

h
c

l
l

a
t
a
h
t
g
n
i
r
u
s
n
E

i

s
e
n
c
c
a
v
d
o
o
h
d

l
i

h
c
f
o
t
e
s
e
h
t
e
v
i
e
c
e
r

O
H
W
e
h
t
y
b
d
e
d
n
e
m
m
o
c
e
r

e
t
a
t
i
l
i

c
a
f
o
t
s
e
r
u
s
a
e
m

i

t
n
e
c
i
f
f
u
S

f
o
t
n
e
m
t
a
e
r
t
d
n
a
n
o
i
t
c
e
t
e
d
y
l
r
a
e

l

s
m
e
b
o
r
p
h
t
l
a
e
h

l

a
t
n
e
m

l

e
b
a

l
i

i

i

a
v
a
s
e
n
c
d
e
m
n
o
i
t
p
i
r
c
s
e
r
P

d
e
e
n
n

i

n
e
r
d

l
i

h
c
r
o
f

t
s
o
c
o
n
t
a

d
e
d
i
v
o
r
p
s
e
i
t
i
l
i

i

b
a
s
d
h
t
i

w
n
e
r
d

l
i

h
C

d
n
a
n
o
i
t
a
t
i
l
i

b
a
h
e
r
d
e
t
e
g
r
a
t
h
t
i

w

s
e
c
i
v
r
e
s
n
o
i
t
a
t
i
l
i

b
a
h

d
n
a
n
o
i
t
o
m
o
r
p
h
t
l
a
e
h
e
t
a
u
q
e
d
A

s
e
m
m
a
r
g
o
r
p
n
o
i
t
n
e
v
e
r
p
e
s
a
e
s
d

i

d
e
e
n
n

i

n
e
r
d

l
i

h
c
g
n
i
t
e
g
r
a
t

Austria 
Belgium 
Bulgaria 
Croatia 
Cyprus 
Czechia 
Estonia 
Denmark 
Finland 
France 
Germany 
Greece 
Hungary 
Ireland 
Italy 
Latvia 
Lithuania 
Luxembourg 
Malta 
Netherlands 
Poland 
Portugal 
Romania 
Slovakia 
Slovenia 
Spain 
Sweden 

Partial 
Partial 
Partial 
Wide 
Partial 
Limited 
Partial 
Wide 
Wide 
Partial 
Partial 
Partial 
Limited 
Partial 
Partial 
Limited 
Full 
Wide 
Partial 
Wide 
Partial 
Partial 
 Partial 
 Partial 
Wide 
Partial 
Wide 
Source: European Commission, based on information from Child Guarantee Coordinators. See Annex III for 
methodological description.  

 Full 
Partial 
Partial 
Partial 
Wide 
Wide 
Wide 
Wide 
Wide 
Partial 
Wide 
Partial 
Partial 
Partial 
Partial 
Partial 
Full 
Wide  
Partial 
Wide 
Wide 
Wide 
Limited 
Limited 
Wide 
Partial 
Full 

Wide 
Partial 
Limited 
Wide 
Wide 
Partial 
Wide 
Wide 
Wide 
Wide 
Wide 
Wide 
Partial 
Partial 
Partial 
Limited 
Wide 
Partial 
Wide 
Full 
Wide 
Limited 
Limited 
Limited 
Full 
Wide 
Full 

Partial 
Full 
Wide 
Partial 
Wide 
Partial 
Partial 
Full 
Wide 
Wide 
Wide 
Partial 
Full 
Wide 
Wide 
Full 
Wide 
Full 
Wide 
Partial 
Partial 
Wide 
Limited 
Partial 
Wide 
Wide 
Wide 

Wide 
Limited 
Partial 
Limited 
Partial 
Limited 
Partial 
Full 
Wide 
Wide 
Partial 
Partial 
Partial 
Partial 
Partial 
Partial 
Partial 
Wide 
Partial 
Wide 
Partial 
Partial 
 Partial 
Partial 
Wide 
Partial 
Wide 

Partial 
Partial 
Partial 
Wide 
Wide 
Wide 
Partial 
 Wide 
Wide 
Partial 
Partial 
Partial 
Limited 
Wide 
Limited 
Limited 
Partial 
Partial 
Full 
Wide 
Limited 
Partial 
Wide 
 Wide 
Wide 
Partial 
Wide 

58 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
3.7 

Digital inclusion and safety 

While not explicitly listed as one of the services that should be guaranteed for children 
in  need,  safe  digital  inclusion  has  a  key  role  to  play  in  overcoming  childhood 
disadvantages. The ECG Recommendation mentions the digital tools among educational 
materials, which should be made freely available for children in need. The Member States 
are  also  called  upon  to  provide  high  speed  connectivity,  digital  services  and  adequate 
equipment necessary for distance learning and to make the necessary investment to tackle 
all  forms  of  digital  divide.  These  measures  are  expected  to  result  in  ensured  access  to 
educational content online and improved digital skills for children in need as well as for 
their  teachers (81).  However,  educational  attainment  is  not  the  only  aspect  of  children’s 
well-being that is becoming highly dependent on digital factors. Equally impacted is the 
overall socialisation, which is increasingly taking place through social media and gaming 
platforms, leading to negative behaviours such as excessive and problematic social media 
use.  Immersive  technologies  potentially  amplify  these  effects  (82).  This  creates  various 
kinds of vulnerabilities, from addictions to cyberbullying, to grooming and recruitment by 
criminal networks (83). Like with most other risks, children in need are more exposed than 
the general population. 

The spread of digital technologies contributes to the persistence of the long-standing 
educational  inequalities.  Already  ten  years  ago,  children  from  higher  socio-economic 
backgrounds  were  using  digital  tools  for  information-seeking  and  educational  purposes 
more often than their less advantaged peers (84). In contrast, adolescents from families with 
low socio-economic status were more than twice as likely as their most affluent peers to 
play  computer games for seven hours or more on a typical day (85). Those differences in 
the use of computers were reflected by the lower level of digital skills among vulnerable 
children  (86).  This  difference  only  increased  during  the  COVID-19  pandemic  when 
children in need were disproportionately affected by the sudden shift to distance learning. 
Weaker  parental  supervision  and  support  when  studying  online,  less  accommodating 
physical conditions (lack of a quiet place to study and IT equipment for exclusive use) and 
less  robust  internet  connections  were  all  associated  with  lower  socioeconomic  status, 
amplifying the impact of lower digital skills.  

(81)  Council Recommendation (EU) 2021/1004 of 14 June 2021 establishing a European Child Guarantee, 

§7 (g) and §7 (h). 

(82)  How’s 

Life 

for 

Children 

in 

the  Digital 

Age?,  OECD 

Publishing, 

Paris, 

https://doi.org/10.1787/0854b900-en, p. 16. 

(83) Lamphere-Englund, G. (2025), ‘Protecting Children in Online Gaming: Mitigating Risks from Organized 
Violence’, Working Paper, UNICEF Innocenti – Global Office of Research and Foresight, Florence. 

(84)  Micheli, M. (2015), “What is New in the Digital Divide? Understanding Internet Use by Teenagers from 
https://doi.org/10.1108/S2050-
10, 

Social  Backgrounds”,  Vol. 

55-87, 

pp. 

Different 
206020150000010003.   

(85)  For  the  entire  population,  the  shares  of  children  spending at  least  seven  hours  on  a  typical  weekday 
playing video games was 8% for boys and 3% for girls, with the proportion reaching 12% on weekend 
days. How’s Life for Children in the Digital Age?, OECD, p. 16. 

(86)  Scherer, R., & Siddiq, F. (2019). The relation between students’ socioeconomic status and ICT literacy: 
Findings 
13–32. 
https://doi.org/10.1016/j.compedu.2019.04.011 The gap may be weaker than those in mathematics or 
reading literacy. 

meta-analysis. 

Computers 

Education, 

from 

138, 

& 

a 

59 

 
 
 
In addition, the COVID-19 lockdowns increased the importance of internet and social 
media  in  the  lives  of  children  and  youth.  Along  with  rapid  development  of  digital 
technologies, including Artificial Intelligence, in recent years, this contributed to the rise 
of cyberbullying as a social problem. Cyberbullying is  understood as a behaviour carried 
out  through  digital  technologies,  with  the  primary  intention  or  effect  of  repeatedly  or 
continuously humiliating, socially excluding, abusing, harassing or harming in particular 
children or young people. Repetition is a key feature, relating to the continuing effects on 
the victim and the risk that a one-time event may be repeatedly shared online, extending 
trauma  and  causing  re-victimisation  without  further  perpetrator  involvement.  Power 
imbalance remains central, but may derive online from unequal digital influence, skills, 
access to technology, or control over content, rather than physical strength or social status 
alone. Cyberbullying can occur anytime and anywhere, including on private devices and 
non-public channels, making it harder to address. It commonly takes the form of hurtful 
comments, spreading rumours, or sharing humiliating content. Anonymity, wide audience 
reach, and  constant  connectivity amplify harm,  while digital environments  foster moral 
disengagement,  reduced  empathy,  and  online  disinhibition.  Harmful  content  can  persist 
indefinitely, be reshared or made viral, extending victimisation, hindering recovery, and 
enabling a continuum of aggression across online and offline spaces. Anonymity provides 
users  the  freedom  to  voice  opinions  without  fear  of  judgement,  potentially  leading  to 
impulsive  and  aggressive  acts.  Disembodiment  allows  individuals  to  create  virtual 
identities that feel less vulnerable, while disinhibition reflects reduced restraint in online 
interactions, escalating hostile behaviours. 

Adolescents from less affluent families report lower levels of mental well-being. In the 
2021/2022 survey on Health Behaviour in School-aged Children (HSBC), this was shown 
for  all  EU  Member  States  except  Cyprus,  Finland,  Denmark  and  Italy.  Specifically, 
adolescents  from  low-affluence  families  had  worse  outcomes  in  terms  of  overall  life 
satisfaction, self-rated health and mental well-being. They were also less likely than more 
affluent adolescents to report that they could always find solutions to problems and manage 
to do the things they had decided to do. The findings from the 2021/2022 HBSC emphasise 
the  need  to  intervene  early,  develop  comprehensive  national  strategies  that  focus  on 
children’s and adolescents’ well-being and conduct ongoing monitoring and surveillance 
of children’s and adolescents’ mental health needs and support (87). 

According to the OECD, the impact of cyberbullying is particularly pronounced for 
children from lower socio-economic backgrounds who experience it at double the rate 
of their peers from more affluent families. Several other demographic factors (e.g. living 
with  a  disability)  are  also  associated  with  higher  vulnerability.  Gender  differences  are 
observed, with girls facing more frequent victimisation and boys more often engaging in 
cyberbullying behaviours. Family structure is another factor, with reports indicating higher 
victimisation  rates  among  children  from  single-parent  families  compared  to  those  from 
two-parent  households (88).  The  research  conducted  by  OECD  also  examines  other 
disadvantages faced by children concerning digital inequality. Concerns are raised about 
adolescents' intensive engagement with digital technologies, where excessive time spent 

(87) Cosma A, Abdrakhmanova S, Taut D, Schrijvers K, Catunda C, Schnohr C. (2023) A focus on adolescent 
mental  health  and  wellbeing  in  Europe,  central  Asia  and  Canada.  Health  Behaviour  in  School-aged 
Children  international  report  from  the  2021/2022  survey.  Volume  1.  Copenhagen:  WHO  Regional 
Office for Europe. 

(88)   OECD  (2025),  How's  Life 

for  Children 

in 

the  Digital  Age?,  OECD  Publishing,  Paris, 

https://doi.org/10.1787/0854b900-en.  

60 

 
 
 
on  video  games  or  social  media  is  associated  with  lower  life  satisfaction  and  reduced 
prosocial  behaviour.  Adolescents  from  lower  socio-economic  backgrounds  are  less 
inclined to use digital resources for educational purposes outside school and are prone to 
excessive  gaming.  They  are  also  less  likely  to  modify  privacy  settings  or  disable 
notifications while sleeping, highlighting digital inequalities affecting online behaviours 
and well-being. 

An  estimated  nine in ten children in  Europe play  online games (89). According to  a 
recent working paper by UNICEF, most children under 12 years old, with boys and girls 
equally likely to play games until mid-adolescence, after which boys’ participation remains 
higher (e.g. 94% of boys vs 80% of girls at age 16–17 years in the UK). Male teenagers 
find video games more socially significant and accepted, while girls appear to prefer social 
media for making a meaning. Despite widespread misconception, depictions of violence 
in video games are not connected to real-world violence. On the contrary, games have been 
shown to produce improvements in cognitive performance and mental health, with online 
multiplayer  games  fostering  social  connection,  creativity  and  community-building. 
However,  gaming  environment  is  also  increasingly  exploited  by  criminal  networks  to 
propagandize, groom, recruit and organise young players, including children. In addition, 
bullying  and  harassment  are  increasingly  common  (in  some  US  surveys,  up  to  75%  of 
teenage respondents report having fallen a victim when playing online with other players) 
(90). Overall, the following three main harms have been identified: (i) creating new video 
games and modifications to motivate violence; (ii) gamifying offline violence and using 
gaming  culture  for  propaganda;  (iii) using  gaming  communications  functionalities  to 
groom and recruit. The national action plans for implementation of ECG would benefit 
from the addition of measures to prevent and address those challenges.  

In the European Union, minors are protected and empowered online by one of the 
world’s  most  comprehensive  toolboxes  for  child  safety.  This  includes  the  Digital 
Services Act (91) and its guidelines on the protection of minors (92), the Audiovisual Media 
Services Directive (93), the AI Act (94) and the Safer Internet Centres (95) under the Better 
Internet  for  Kids  Strategy (96),  which  advise  and  assist  children,  parents,  teachers  and 
carers on digital questions and help the fight against online child sexual abuse. The voices 
of  more  than  6,300  children,  out  of  whom  some  24%  have  themselves  experienced 
cyberbullying (97)  have  informed  the  EU  action  plan  against  Cyberbullying (98),  which 
strengthens  efforts  to  prevent  and  combat  the  growing  trend  of  this  abusive  behaviour 
online. In March 2025, a special panel was established to advise the Commission President 

(89) Danko, D., (2023) ‘The Health Effects of Video Games in Children and Adolescents,’ Pediatrics Review, 

vol. 44, no. 1, pp. 23–32, https://pubmed.ncbi.nlm.nih.gov/36587018/. 

(90) Lamphere-Englund, G., op.cit. 

(91) https://digital-strategy.ec.europa.eu/en/policies/digital-services-act. 

(92) https://digital-strategy.ec.europa.eu/en/library/commission-publishes-guidelines-protection-minors. 

(93)  https://digital-strategy.ec.europa.eu/en/policies/audiovisual-and-media-services. 

(94)  https://digital-strategy.ec.europa.eu/en/policies/regulatory-framework-ai. 

(95)  https://better-internet-for-kids.europa.eu/en/sic. 

(96) https://better-internet-for-kids.europa.eu/en. 

(97)  https://eu-for-children.europa.eu/cyberbullying_en. 

(98)  https://digital-strategy.ec.europa.eu/en/policies/cyberbullying. 

61 

 
 
 
 
on child safety online and potential age limits for social media and other online services in 
Europe (99). The panel  brings together youth  representatives as well as specialists from 
various fields, including health, neuroscience, psychology, computer science, child rights 
and  digital  literacy,  from  across  the  EU  to  assess  the  impact  of  social  media  and  other 
digital  tools  on  children.  The  Special  Panel  does  not  have  permanent  membership  and 
specialists invited may vary from meeting to meeting depending on the topic discussed and 
their relevant expertise. Even more importantly, to help online platforms implement a user-
friendly and privacy-preserving age verification method, the Commission, has developed 
a harmonised approach to age verification in the EU in close collaboration with Member 
States.  As  of  April  2026,  the  age  verification  solution  is  technically  ready  for 
implementation.  Once  it  is  made  available  as  a  free-of-cost  app  (possible  to  set  up  on 
phone, tablet or computer), the users will be able to prove they are above a certain age 
without  sharing  any  other  personal  information  and  without  tracking  of  their  activity. 
Moreover,  the  forthcoming  European  Commission  Action  Plan  on  the  protection  of 
Children  against  Crime  will  complement  the  existing  framework  by  strengthening 
preventive approaches that address the root causes increasing children’s vulnerabilities to 
crime, both as victims and as perpetrators, online or offline. 

Making Internet safer for children in Latvia 

Within  the  framework  of  the  programme  Digital  Europe  and  Connecting  Europe  Facility,  the  Child 
Protection  Center,  in  cooperation  with  the  Latvian  Internet  Association  and  the  Municipal  Training 
Center, has implemented several projects aimed at ensuring the continued operation of the Latvian Safer 
Internet Centre. The objective of these projects is to promote public awareness of online safety and to 
provide accessible mechanisms for reporting online safety concerns. This includes the possibility to report 
violations  in  the  online  environment  electronically,  as  well  as  by  phone  through  the  Children  and 
Adolescents Trust Helpline. The projects were implemented to support and deliver services that foster a 
safe and trustworthy online environment for children. 

3.8  Healthy nutrition 

Poor  nutrition  impairs  cognitive  development,  affecting  children's  ability  to 
concentrate  and  perform  academically.  Health  consequences  include  increased 
susceptibility to diseases and long-term conditions such as obesity and diabetes, which are 
more prevalent among children in disadvantaged environments (100). Tackling these issues 
through  nutrition  programmes  is  vital  for  fostering  healthier  lifestyles  and  improved 
educational outcomes. Evidence highlights the crucial role of food support programmes, 
improving food security both short and long-term, leading to enduring health benefits (e.g. 
lower incidences of obesity, high blood pressure, heart disease and diabetes) and reduced 
future healthcare costs. Such programmes can contribute to financial security, with early 
access  linked  to  increased  economic  self-sufficiency  in  adulthood (101).  Research 
underscores the importance of investing in access to healthy nutrition, aiming to break the 

(99)  https://digital-strategy.ec.europa.eu/en/policies/panel-child-safety-online. 

(100)  See  e.g.  School  Meals  Coalition’s  Research  Consortium, The  current  state,  benefits,  and  exemplary 
models of school meal programmes in the European Union, 2025 Insights from a new report on school 
meal programmes in the EU - Employment, Social Affairs and Inclusion. 

(101)  See  e.g.  Hoynes,  H.,  Schanzenbach,  D.  W.,  &  Almond,  D.  (2016).  Long-run  impacts  of  childhood 
access  to  the  safety  net.  American  Economic  Review,  106(4),  903-934;  Maag,  E.  (2023). Return  on 
Investing  in  Children:  Helping  Children  Thrive.  Urban  Institute;  Bailey,  M.  J.,  Hoynes,  H.,  Rossin-
Slater, M., & Walker, R. (2024). Is the social safety net a long-term investment? Large-scale evidence 
from the food stamps program. Review of Economic Studies, 91(3), 1291-1330. 

62 

 
 
 
cycle  of  disadvantage  and  ensure  equitable  health  and  economic  outcomes  for  future 
generations. 

Complementary to the data on food deprivation of children presented in Section 4.5, two 
additional indicators from  the EU-level  monitoring framework are of relevance for this 
assessment, i.e. the share of children who are overweight or obese and the share of children, 
who reported drinking sugary soft drinks daily,  both  broken down by family  affluence. 
Both indicators provide proxy information as regards key aspects of §9, such as nutritional 
quality of food consumed inside and outside of schools, restrictions of availability of foods 
high in fat, salt and sugar in educational settings and more broadly food literacy.  

Concerning the rate of children overweight or obese, the share of children concerned 
with  low  family  affluence  has  increased  to  29.1%  in  2022,  reflecting  a  3.1  pp.  rise 
since 2018. Meanwhile, children from high family affluence backgrounds exhibit lower 
rates of overweight and obesity, with only 18.3% affected in 2022. This difference marks 
a widening gap of 10.8 pp., up from a gap of 8.7 percentage points in 2018, illustrating 
persistent and deepening disparities between different socioeconomic groups. Looking at 
individual Member States, a decrease in the share of children overweight or obese with 
low family  affluence is  recorded in  only  4  countries, while such share has increased or 
remained stable in the others. In the same dynamic, the gap with children with high family 
affluence has also been reduced in a minority of Member States – eight of them.  

The  Netherlands  emerges  as  one  of  the  better-performing  countries,  with  the  lowest 
incidence of overweight and obesity among low family affluence children, registering at 
19.5%  in  2022.    Conversely,  Bulgaria  reports  the  highest  prevalence,  with  an  alarming 
41% of children from low affluence families overweight or obese. In addition, Bulgaria 
shows the largest gap, standing at 22.5 pp., highlighting significant differences in access 
to nutritious food and health education between different affluence levels. This results from 
the largest increase in overweight/obesity incidence among low affluence children, having 
increased by 15.5 pp. since 2018. When examining the gap between children from low and 
high family affluence, Greece displays the smallest disparity, with a gap of just 2 pp. This 
is due to a 5 pp. decrease in incidence of overweight and obesity among disadvantaged 
children which brings it closer to the EU average (29.1%), coupled with a 6 pp. increase 
among advantaged children.  

63 

 
 
Graph 18: share of children (aged 13) with low (and high) family affluence who are overweight or 
obese (in %) in 2022, and 2018 

45

40

35

30

25

20

15

10

5

0

EU BE BG CZ DK DE EE IE EL ES FR HR IT CY LV LT LU HU MT NL AT PL PT RO SI SK FI SE

Low family affluence (2018)

Low family affluence (2022)

High family affluence (2018) High family affluence (2022)

Notes: No 2022 data available for Ireland and Romania, and no 2018 data for Cyprus. 
Source: WHO HBSC. 

There is a similar yet smaller gap between children with low and high family affluence 
who  reported  consuming  sugary  soft  drinks  daily.  In  2022,  the  share  of  disadvantaged 
children reporting daily consumption of sugary soft drinks stands at 16.8% on average in 
the EU, against 12.2% of more advantaged children. Given the impact of soft sugary drinks 
on children’s weight and health, some part of the gap in overweight and obesity incidence 
across socioeconomic group might stem from their consumption, but not solely.  

Data from these two indicators underline both progress and ongoing challenges in ensuring 
equitable access to healthy nutrition for children in need. Countries such as the Netherlands 
have demonstrated effective reductions in obesity rates and improved dietary habits among 
less affluent groups, suggesting that strategic health interventions are yielding results. Yet, 
disparities  tied  to  socioeconomic  status  remain  entrenched  as  regards  both  soft  drinks 
consumption  and  overweight/obesity  incidence.  These  mixed  outcomes  prompt  a 
continuing need for further efforts to limit availability of foods high in fat, salt and sugar, 
alongside promoting food literacy skills among children in need.  

The  guidance  for  Member  States  concerning  effective  access  to  healthy  nutrition  for 
children in need is presented in § 9 of the ECG Recommendation. In the assessment of 
effectiveness of access to healthy nutrition by children in need, stress has been put on the 
existence of in-kind or financial support to families with children in need which would be 
explicitly designed to support access to healthy nutrition outside of school days. Malta and 
Hungary are the best performers on this account. The Maltese Ministry for Social Policy 
and Children’s Rights (MSPC) implements the ‘Food 4 You’ Support Project which is co-
financed by the ESF+ alongside the Scheme for Food Distribution (SFFD). Through these 
two  initiatives,  the  MSPC  distributes  food  packages  containing  a  wide  variety  of  items 
intended for household consumption. Two distributions per year are carried out through 
the SFFD, and three distributions through the Food 4 You Support Project. The products 
are carefully selected to enable households to prepare complete and balanced meals. As a 
result, children who are members of eligible households directly stand to benefit from these 

64 

 
 
 
 
food distributions. Hungary has put in place a scheme for provision of the midday warm 
main meal to schoolchildren during the summer vacation, as well as during the autumn, 
winter and spring breaks.  

ESF+ in support of Dutch foodbanks 

As part of the obligation to allocate 3% of the ESF+ budget for aid to the most deprived, the Netherlands’ 
ESF+ programme explicitly targets children at risk of poverty. The Dutch have decided to allocate more 
than 3%, corresponding to EUR 15.8 million, to this specific objective. Following a call for proposals, the 
Dutch  foodbanks  have  been  selected  to  provide  food  and  material  assistance  for  the  most  deprived, 
including children. Food aid should be healthy and could be in the form of (school) meals. Material aid 
could include school supplies or other basic needs. Accompanying measures should specifically target 
children growing up in poor households, for instance by providing sports or cultural activities.    

Only some Member States are taking action to limit advertisement and availability 
of unhealthy food. One of them is Slovenia, where vending machines have been banned 
in schools. The ECG action plan envisions the restriction of marketing of unhealthy foods 
(energy-dense and nutritionally poor foods and sugary drinks) to children, with a focus on 
limiting the digital marketing of unhealthy foods. When organizing school meals, schools 
are required to follow the nutritional guidelines for educational institutions. Food literacy 
is part of the curriculum in primary schools. In Latvia, advertisement and availability of 
foods  high  in  fat,  salt  and  sugar  are  limited  through  regulations,  especially  concerning 
children, and by banning junk food sales in schools. There are restrictions on marketing 
unhealthy foods to children, covering television advertising and the sale of these products 
in schools and nurseries. As per action plan, a long-term policy to promote healthy nutrition 
for children (e.g. via reduced tax for food for infants and for fresh fruit and vegetables) is 
implemented. Besides regulating advertisements, Cyprus runs a list of products available 
in school canteens approved by the Central Committee for the Control of School Canteens. 
Foods high in fat, salt and sugar are not included. 

65 

 
 
 
 
Table  7:  Implementation  of  provisions  of  ECG  Recommendation  on  effective  access  to  healthy 
nutrition 

Access to healthy nutrition outside of 
school supported for children in need 

Limited advertisement and  
availability of unhealthy food 

Austria 
Belgium 
Bulgaria 
Croatia 
Cyprus 
Czechia 
Estonia 
Denmark 
Finland 
France 
Germany 
Greece 
Hungary 
Ireland 
Italy 
Latvia 
Lithuania 
Luxembourg 
Malta 
Netherlands 
Poland 
Portugal 
Romania 
Slovakia 
Slovenia 
Spain 
Sweden 

 Partial 
Partial 
Partial 
Partial 
Wide 
Limited 
Wide 
Wide 
Partial 
Partial 
Partial 
Partial 
 Wide 
Partial 
Partial 
Partial 
Wide 
Full 
Full 
Limited 
Partial 
Partial 
Partial 
Limited 
Wide 
Partial 
Partial 

Limited 
Partial 
Partial 
Limited 
Full 
Limited 
Full 
Partial 
Wide 
Wide 
Partial 
Partial 
Wide 
Wide 
Limited 
Full 
Full 
Partial 
Full 
Partial 
Partial 
Wide 
Wide 
Partial 
Full 
Partial 
Partial 

Source: European Commission, based on information from Child Guarantee Coordinators. See Annex III for 
methodological description.  

Serving healthy meals in Milan 

Since 2015, Milan (Italy) has implemented a comprehensive food policy that  contributes together with 
the  local  school  meals  programme  to  provide  healthy,  sustainable  meals  for  children.  The  service, 
managed in-house by the public company Milano Ristorazione, serves more than 600 canteens, including 
182 kindergartens, providing 77,000 meals daily. 54% of ingredients are organic, and procurement follows 
minimum  environmental  criteria  to  reduce  environmental  impact.  Nutrition  and  food  education  are 
integrated through seasonal and thematic menus, info booklets, workshops and farm visits, engaging over 
70,000 children, 40,000 families and 10,000 school staff. Initiatives like “A 7 Cook as a Friend” connect 
children with cooks, fostering healthy habits and awareness of sustainable diets. 

66 

 
 
 
 
 
 
 
3.9 

Adequate housing 

Housing  conditions  can  have  a  profound  impact  on  child  development.  Inadequate 
housing, including overcrowding and energy poverty, severely disrupts children's ability 
to concentrate and perform academically, exemplified by challenges faced when trying to 
do homework in cramped spaces. These conditions not only hinder educational progress 
but  also  affect  emotional  and  social  development.  The  extreme  phenomenon  of  child 
homelessness  leads  to  adverse  health  and  emotional  outcomes,  jeopardising  children's 
future  prospects,  and  increasing  societal  costs.  In  this  context,  guaranteeing  access  to 
adequate  housing  for  children  in  need,  including  children  with  disabilities  for  whom 
accessibility  considerations  must  come  into  play,  appears  as  an  important  investment. 
While  an  overarching  policy  response  is  presented  in  the  Commission’s  proposal  for  a 
Council  Recommendation  on  fighting  housing  exclusion,  which  is  published  along  this 
Staff  Working  Document,  this  section  takes  stock  of  actions  taken  by  member  States, 
which  have  contributed  to  improving  the  situation  of  children.  Targeted  policies  that 
prevent and tackle child homelessness, particularly housing-led solutions, yield high rates 
of  return,  significantly  reducing  public  spending  on  healthcare  and  shelters,  increasing 
employment  and  tax  revenues  and  bolstering  social  cohesion (102).  Moreover,  tailored 
support  to  young  people  transitioning  out  of  alternative  care  is  crucial,  as  they  are  at  a 
heightened  risk  of  falling  into  homelessness  without  such  assistance (103).  Investing  in 
these measures  not  only  stabilises children's  lives but  also  cultivates societal  resilience, 
making  it  an  economically  sound  and  socially  imperative  venture  for  fostering  healthy 
societal development. 

3.9.1 

Combatting homelessness 

Monitoring  progress  on  combatting  homelessness  is  challenging  in  view  of  lack  of 
directly relevant data. In line with § 10 (a) of the ECG Recommendation, Member States 
should ensure that homeless children and their families receive adequate accommodation, 
prompt transfer from temporary accommodation to permanent housing and are supported 
by relevant social and advisory services. Within the EU-level monitoring framework, one 
indicator is of relevance to the assessment of compliance with this recommendation, i.e. 
the share of children living in a household facing housing cost overburden. A household 
faces housing cost overburden when the total housing costs (net of housing allowances) 
represent  more than 40% of its disposable income. When such  costs represent  a higher 
share of income, households are at higher risk of living in an inadequate dwelling (e.g. due 
to difficulties in paying utility bills), being evicted (e.g. due to difficulties in paying rents) 
and ultimately end up homeless. In other words, while there is a lack of comparable data 
on the number of homeless children throughout the EU, such indicator provides crucial 
proxy  information  as  regards  risk  of  homelessness.  In  2021,  across  the  EU,  20.7%  of 
children AROPE lived in households struggling with housing cost overburden, whereas 
only  2.4%  of  children  not  AROPE  confronted  this  issue.  This  disparity  highlighted  an 
eight-fold difference (or a gap of 18.3 pp.) between the two groups. Over the ensuing years 
leading  up  to  2024,  the  situation  marginally  worsened  for  children  AROPE  with  the 

(102) See  e.g.  Van  Leerdam,  J.  (2013).  Analysing  costs  and  benefits  of  homelessness  policies  in  the 

Netherlands: Lessons for Europe. European Journal of Homelessness _ Volume, 7(2). 

(103) See  e.g.  Frechon,  I.,  &  Marpsat,  M.  (2016).  Placement  dans  l’enfance  et  précarité de  la  situation  de 
logement. Economie  et  Statistique/Economics  and  Statistics,  (488-489),  37-68;  Dworsky,  A., 
Napolitano,  L.,  &  Courtney,  M.  (2013).  Homelessness  during  the  transition  from  foster  care  to 
adulthood. American journal of public health, 103(S2), S318-S323. 

67 

 
 
 
percentage  rising  to  21.1%,  while  the  rate  remained  steady  for  children  not  AROPE  at 
2.4%. Consequently, the gap widened slightly to 18.7 pp., illustrating persistent inequality 
in housing affordability.  

Graph  19:  share  of  children  AROPE  (and  not  AROPE)  living  in  a  household  facing 
housing cost overburden (in %) in 2024, and 2022 

80

70

60

50

40

30

20

10

0

EU BE BG CZ DK DE EE IE EL ES FR HR IT CY LV LT LU HU MT NL AT PL PT RO SI SK FI SE

AROPE (2022)

AROPE (2024)

Not AROPE (2022)

Not AROPE (2024)

Notes: Break in time series for France, Luxembourg and Finland in 2022, No data available for Estonia in 
2024, and provisional data for Lithuania in 2024. 
Source: Eurostat (online data code ILC_CHG05, date of extraction – 03/12/2025). 

Examining  housing  cost  overburden  at  national  level,  a  decrease  in  the  share  of 
children  AROPE  in  households  facing  housing  cost  overburden  is  recorded  in  10 
Member States, while elsewhere such share has increased or remained stable. In the same 
dynamic, the gap with children not AROPE has also been reduced in a minority of Member 
States – nine of them. In all Member States, children AROPE remain more likely to live 
in  households  facing  housing  cost  overburden  than  their  more  advantaged  peers. 
Netherlands presented a favourable scenario with the incidence of housing cost overburden 
of 9.6% among children AROPE. In stark contrast, Greece reported the highest proportion 
at  75.1%,  indicating  a  severe  challenge  in  alleviating  housing  cost  pressures  for  this 
demographic.  In  relation  to  the  gap  between  children  AROPE  and  not  AROPE,  the 
Netherlands  also  showcased  the  lowest  difference,  maintaining  a  gap  of  just  9.1  pp. 
Conversely, Greece and Czechia displayed one of the largest disparities, respectively at 
65.4 and 46.9 pp., underscoring pronounced inequality in housing affordability between 
the  groups.  The  period  saw  noteworthy  improvements  in  some  countries,  most  notably 
Bulgaria and Denmark, experiencing reductions in housing cost overburden for children 
AROPE by 12.7 and 12.3 pp. each. On the other hand, countries such as Czechia, Malta 
and Slovakia faced marked increases in the share of children AROPE living with housing 
cost overburden, with increases by respectively 14.2, 13.9 and 15.0 pp. 

Overall,  progress  in  preventing  homelessness  risk  through  improved  housing 
affordability has been mixed. While certain countries like Bulgaria and Denmark have 
shown  reductions  in  the  housing  cost  overburden  for  children  AROPE,  other  countries 
exhibit challenges with substantial inequalities. In the EU, the overall increase in children 
68 

 
 
 
 
AROPE facing housing cost overburden and the gap with children not AROPE underscores 
the need for targeted and effective policy interventions to enhance housing stability and 
support for vulnerable children and families and thus, reduce the risks of homelessness. 
§  10  (a)  of  the  ECG  Recommendation  calls  upon  the  Member  States  to  ensure  that 
homeless  children  and  their  families  receive  adequate  accommodation,  prompt  transfer 
from temporary accommodation to permanent housing and provision of relevant social and 
advisory services. In addition, point § 10 (b) calls for policy measures to prevent risk of 
homelessness. To be fully compliant with the ECG guidance on combatting homelessness 
among  children,  Member  States  should  be  able  to  establish  the  number  of  homeless 
children in their territory and report it, along with the method of calculating this number, 
in their action plan and in the subsequent progress reports. Furthermore, the provision of 
temporary  accommodation  for  homeless  families  with  children  and  their  transfer  from 
temporary accommodation to permanent housing should be subject to clearly stated (and 
relatively  short)  deadlines.  For  full  compliance  on  prevention  of  homelessness  risks, 
specific measures (such as e.g. social and advisory services) should be in place and targeted 
specifically at families with children. 

Homelessness prevention in Belgium 

Following  the  housing-led  approach,  Housing  First  for  Youth  (HF4Y)  in  Belgium  is  a  rights-based 
intervention for young people (aged 16-30) who are experiencing  homelessness, or who are at risk of 
becoming homeless. One of the goals of HF4Y is to support young people through their adolescence and 
facilitate a healthy transition to adulthood, while having a safe and stable place to live. The programme is 
designed to address the specific needs of developing adolescents and young adults by providing them with 
rapid access to housing that’s safe, affordable, appropriate and without pre-conditions, combining this 
with necessary and age-appropriate support that focuses on health, well-being, life skills, engagement in 
education and employment, as well as social inclusion. 

As  for  qualitative  assessment,  out  of  all  Member  States,  Finland  and  the  Netherlands 
emerge as the most compliant with ECG Recommendation. In Netherlands, the ministry 
of Housing and Spatial Planning and the Association of Netherlands Municipalities have 
agreed that municipalities are primarily responsible to provide housing and support after 
evictions. This can either be structural housing or temporary housing. The Dutch action 
plan states that transition to permanent housing should take place within three months and 
mentions plans to modernise shelters and supported accommodation. It also describes steps 
taken to prevent and combat homelessness (early identification of risks, including debts). 
Those are not targeted at families with children, but thanks to wide social housing stock 
and prioritisation of access, such families are not particularly at risk.  

High level of compliance with recommendations to combat and prevent homelessness of 
families with children has been recorded also for Finland. According to the 2024 progress 
report, at the end of 2023, there were 123 homeless couples and families in Finland (32 
fewer  than  year  before),  with  a  total  of  180  children  (11  more)  (104).  Most  homeless 
families with children in Finland live temporarily with acquaintances or relatives.  As for 
prevention,  all  low-income  households  who  live  in  rental,  right-of-occupancy  or  part-
ownership housing are eligible for general housing allowances. The eligibility depends on 
the structure of the household, housing costs and the total income of the household. The 
eligibility regulations are the same for all legal residents, including homeless people, who 
are eligible for housing allowances once they have an apartment to live in. The incidence 

(104) However, an increase in homelessness was recorded in Finland after submission of the 2024 progress 

report. See https://urn.fi/URN:ISBN:978-952-361-282-2. 

69 

 
 
 
of housing cost overburden is low. Finland aims to eliminate long-term homelessness by 
2027. For a complete overview of  compliance with  ECG recommendations referring to 
homelessness please see Table 8. 

Table  8:  Implementation  of  provisions  of  ECG  Recommendation  on  combatting 
homelessness 

Prompt provision of adequate 
temporary accommodation and 
transfer to permanent housing for 
homeless families with children  

Measures in place to prevent  
the risk of homelessness among 
families with children 

Austria 
Belgium 
Bulgaria 
Croatia 
Cyprus 
Czechia 
Estonia 
Denmark 
Finland 
France 
Germany 
Greece 
Hungary 
Ireland 
Italy 
Latvia 
Lithuania 
Luxembourg 
Malta 
Netherlands 
Poland 
Portugal 
Romania 
Slovakia 
Slovenia 
Spain 
Sweden 

Wide 
Limited 
Limited 
Limited 
Limited 
 Wide 
Wide 
Wide 
Wide 
Limited 
Partial 
Partial 
Limited 
Partial 
Limited 
Partial 
Wide 
Wide 
Partial 
Wide 
Partial 
Wide 
Limited 
Partial 
Partial 
Partial 
Wide 

Wide 
Partial 
Limited 
Limited 
Partial 
Limited 
Partial 
Wide 
Full 
Wide 
Partial 
Limited 
Partial 
Limited 
Wide 
Partial 
Partial 
Wide 
Partial 
Wide 
Partial 
Limited 
Limited 
Limited 
Wide 
Limited 
Wide 

Source: European Commission, based on information from Child Guarantee Coordinators. See Annex III for 
methodological description.  

3.9.2 

Adequate accommodation 

In line with § 10 (b) of the ECG Recommendation, Member States should assess their 
housing policies and take action to ensure that the interests of families with children in 
need are taken into account, including addressing energy poverty. Such assessment should 
also include social housing or housing assistance policies and housing benefits and further 
improve accessibility for children with disabilities. Moreover, § 10 (c) guides the Member 
States to “provide for priority and timely access to social housing or housing assistance for 
children in need and their families”. Two indicators included in the monitoring framework 
are of relevance for assessing compliance with those recommendations. The one tracking 
the shares of children living in overcrowded households shows how many children live in 
households that do not have an adequate number of rooms (e.g. one room for each child of 
different  gender  between  12  and  17  years  of  age).  The  second  indicator  monitors  the 

70 

 
 
 
incidence of energy poverty and covers the share of children living in a household unable 
to keep their home adequately warm.   

Graph 20: Share (in %) of children AROPE (and not AROPE) living in an overcrowded 
household in 2024, and 2022 

80

70

60

50

40

30

20

10

0

EU BE BG CZ DK DE EE IE EL ES FR HR IT CY LV LT LU HU MT NL AT PL PT RO SI SK FI SE

AROPE (2022)

AROPE (2024)

Not AROPE (2022)

Not AROPE (2024)

Notes: Break in time series for France, Luxembourg and Finland in 2022, No data available for Estonia in 
2024. Provisional data for Lithuania in 2024. 
Source: Eurostat (online data code ilc_chg05, date of extraction – 03/12/2025). 

In  2021,  across  the  EU,  41.1%  of  children  AROPE  resided  in  overcrowded 
households.  This  was  more  than  double  the  figure  for  children  not  AROPE  in  similar 
conditions (19.6%), resulting in a gap of 21.5 pp. By 2024, the share of children AROPE 
in  overcrowded  situations  increased  slightly  to  42.6%.  In  parallel,  the  percentage  for 
children not AROPE also rose, albeit to a lesser extent at 20.1%, thus expanding the gap 
to  22.5  pp.  between  the  two  groups.  This  trend  indicates  a  growing  disparity  in  living 
conditions,  with  a  widening  of  the  gap  by  1  pp.  over  the  two-year  period.  Examining 
housing overcrowding at national level, 11 Member States recorded a decrease in the share 
of children AROPE in households facing housing cost overburden, while such share has 
increased or remained stable in the others. Nine Member States also recorded a decrease 
in the gap with children not AROPE. Yet, in all Member States, children AROPE remain 
more likely to live in an overcrowded household than their more advantaged peers.  

Malta reported the lowest percentage at 12.4%, making it one of the better performers. On 
the contrary, Latvia and Romania recorded the highest percentages at 69.3% and 74.8% 
respectively, placing them as the least effective in addressing overcrowding issues in the 
EU. Assessing the gap between children AROPE and not AROPE, Poland showcased the 
smallest disparity, with a 7.1 pp. difference. Conversely, Sweden reported the largest gap 
(41.4 pp.), underscoring significant inequality in living conditions. The most significant 
reduction  in  overcrowding  among  children  AROPE  was  noted  in  Slovakia,  where  the 
percentage  fell  by  a  notable  12.6  pp.  since  2022.  Belgium  and  Hungary  also  recorded 
decreases,  with  drops  of  respectively  8.0  pp.  and  7.5  pp.  In  contrast,  the  Netherlands 
witnessed a substantial increase, with overcrowding rates among children AROPE rising 
by 16.4 pp. Czechia experienced a similar upward trend, with an increase of 10.4 pp.  

71 

 
 
 
 
Graph  21:  Shares  (in  %)  of  children  AROPE  (and  not  AROPE)  living  in  a  household 
unable to keep home adequately warm in 2024, and 2022 

Notes: Break in time series for France, Luxembourg and Finland in 2022. No data available for Estonia in 
2024. Provisional data for Lithuania in 2024. 
Source: Eurostat (online data code ilc_chg06, date of extraction – 03/12/2025). 

In  2021,  across  the  EU,  24.4%  of  children  AROPE  lived  in  households  unable  to 
maintain adequate warmth at home. In contrast, only 4.2% of children not AROPE faced 
this issue, resulting in a substantial gap of 20.2 pp. between the two groups. By 2024, the 
situation  for  children  AROPE  showed  slight  improvement;  the  percentage  decreased  to 
23.9%.  However,  the  percentage  for  children  not  AROPE  remained  stable  at  4.2%, 
resulting  in  a  gap  that  narrowed  marginally  to  19.7  pp.  This  change  indicates  an 
improvement, with a 0.5 pp. reduction in the gap, illustrating a slow trajectory towards 
more equitable living conditions. Looking at energy poverty at national level, a decrease 
in the share of children AROPE living in households unable to keep their home adequately 
warm is recorded in 11 countries, while such share has increased in most of the others. The 
gap with children not AROPE has also been reduced in 13 Member States. In all Member 
States,  children  AROPE  remain  more  likely  to  suffer  from  energy  poverty.  In  terms  of 
children AROPE living in households with inadequate warmth, Poland reported the lowest 
percentage at  6.9%, making  it one of the better performers. On the opposite end of the 
spectrum, Cyprus showed a staggering percentage of 62.6%, positioning it as the worst 
performer within the EU. Assessing the gap between children AROPE and not AROPE, 
Luxembourg showed the smallest disparity with a gap of just 3.4 pp., whereas Cyprus also 
experienced the largest  gap, at 55.1 pp., highlighting pronounced inequity in household 
warmth between the socioeconomic groups. 

Significant  reductions  in  the  percentage  of  children  AROPE  living  in  energy-poor 
households were most evident in Romania and Croatia, where the rates dropped by 12.4 
and 7.1 pp., respectively, since 2021. Latvia also made notable progress with a decrease of 
6.3  percentage  points.  In  contrast,  Hungary  and  Netherlands  witnessed  substantial 
increases in the percentage of children AROPE affected, with increases by 10.8 and 9.9 
percentage points respectively. Based on the two indicators, the assessment of progress in 
guaranteeing adequate housing for children AROPE reveals mixed outcomes. While there 

72 

 
 
 
 
has  been  slight  progress  in  addressing  energy  poverty  among  children  AROPE, 
overcrowding  remains  a  persistent  issue,  highlighted  by  a  widening  disparity  in  living 
conditions.  While  some countries  show  significant  improvements  (Slovakia  on  housing 
adequacy and Romania on housing warmth), other Member States face severe challenges, 
exacerbating  inequities  tied  to  socioeconomic  status.  There  is  still  a  need  for  targeted 
policies that ensure equitable access to adequate housing for children in need. 

Going  beyond  quantitative  indicators  and  looking  at  policy  measures  intended  to 
address  energy  poverty,  Finland  and  Sweden  appear  as  the  Member  States  with  the 
highest level of compliance with the ECG Recommendation. In Finland, several financial 
measures  were  introduced  to  address  the  spike  in  electricity  prices  (incl.  temporary 
reduction of VAT rate, tax breaks and a subsidy targeted at low-income households). These 
measures were not specifically targeted at families with children but benefited also this 
group. In Sweden, a supplementary housing allowance was available from 2021 to 2024. 
The 2024 progress report discussed the ways to improve the permanent housing allowance, 
so  that  families  receiving  it  run  a  lower  risk  of  repayment.  The  low  share  of  children 
AROPE  living  in  households  unable  to  keep  home  adequately  warm  (7.5%)  shows  the 
efficiency of the above measures. 

Sufficient  supply  of  affordable  public  housing  (incl.  social  housing)  is  key  for 
implementing § 10 (c) of the ECG Recommendation. For the purposes of this SWD, 
such  sufficient  supply  was  assessed  as  the  ability  to  accommodate  at  least  half  of  the 
national population of people at risk of poverty or social exclusion. Whether, in line with 
ECG  Recommendation,  families  with  children  in  need  enjoy  priority  of  access,  was 
determined on the basis of action plans, progress reports and information provided by the 
Child Guarantee Coordinators. Overall,  Finland appears as the best performer, having a 
relatively high (15%) share of social housing within the housing stock (105). Allocation of 
vacant housing is based on social and economic need, taking into account housing needs, 
wealth  and  income  of  the  applicant  household.  This  effectively  prioritizes  low-income 
families  with  children.  For  a  full  overview  of  compliance  with  the  ECG  guidance 
concerning effective access to adequate housing see Table 9.  

(105) https://www.housingeurope.eu/wp-
content/uploads/2025/10/finland_the_state_of_housing_in_the_eu_2025_digital.pdf . 

73 

 
 
 
 
 
Table  9:  Implementation  of  provisions  of  ECG  Recommendation  on  effective  access  to 
adequate housing 

Energy poverty of families with children 
addressed 

Austria 
Belgium 
Bulgaria 

Croatia 
Cyprus 
Czechia 
Estonia 
Denmark 
Finland 
France 
Germany 
Greece 
Hungary 
Ireland 
Italy 
Latvia 
Lithuania 
Luxembourg 
Malta 
Netherlands 
Poland 
Portugal 
Romania 
Slovakia 
Slovenia 
Spain 
Sweden 

Wide 
Wide 
Partial 

Partial 
Partial 
Wide 
Wide 
Wide 
Full 
Partial 
Partial 
Limited 
 Partial 
Limited 
Limited 
Wide 
Wide 
Full 
Wide 
Limited 
Wide 
Limited 
Wide 
Limited 
Wide 
Limited 
Full 

Sufficient supply of public/social 
housing and priority of access given to 
families with children in need 
Wide 
Partial 
Limited 

Limited 
Partial 
Partial 
Partial 
Wide 
Full 
Wide 
Partial 
Limited 
Limited 
Limited 
Limited 
Limited 
Partial 
Partial 
Partial 
Full 
Partial 
Partial 
Limited 
Limited 
Wide 
Limited 
Wide 

Source: European Commission, based on information from Child Guarantee Coordinators. See Annex III for 
methodological description.  

3.9.3. 

Alternative care of good quality 

§ 10 (d) of the ECG Recommendation guides the Member States to ensure transition 
of children from institutional alternative care to quality community-based or family-
based  care,  to  take  into  account  the  best  interests  of  the  child  as  well  as  their  overall 
situation  and  individual  needs  when  placing  them  in  alternative  care,  and  to  support 
independent  living  and  social  integration  of  young  people  who  leave  alternative  care. 
Overall, between 2023 and 2025, the number of children in alternative care across the EU 
decreased  by  2.3%,  from  around  749  to  731  thousand  children.  Despite  this  positive 
development, the share of children placed in residential alternative care among all children 
in alternative care increased by 1.8 pp., from 39.1% in 2023 to 40.9% in 2025.  

74 

 
 
 
 
 
 
Graph 22: Share of alternative care children in residential care (in %) and change (in %) 
of  overall  number  of  children  in  alternative  care  in  the  last  version  of  the  monitoring 
framework (2025) compared to the first (2023) 

Note:  No  update  for  Belgium,  Denmark,  Greece,  Cyprus,  Latvia,  Luxembourg,  Netherlands,  Portugal, 
Slovenia, Slovakia, Finland and Sweden. 
Source:  Data  initially  collected  in  the  framework  of  the  DataCare  project  and  corrected/updated  by  the 
delegates to Indicators Sub-Group of the Social Protection Committee in 2023 and 2025. 

Out of all Member States, Latvia reported the lowest percentage of children in residential 
care at 9.4% in 2025. To achieve this impressive result, Latvian support centres recruit and 
train foster families, implement support plans for foster and specialised carers, and provide 
psychological  help.  With  the  support  of  the  EU  cohesion  funds,  Latvia  is  investing  in 
deinstitutionalisation,  including  for  children  with  severe  disabilities.  Ireland  is  another 
Member State highly compliant with ECG guidance on deinstitutionalisation, even though 
the share of children in residential care among all children in alternative care increased by 
1.3  pp.  between  2022  and  2025,  reaching  10.1%.  In  the  same  period,  Malta  showed  a 
significant decrease (from 44.8% to 23.8%, i.e. by 21 pp.) on the same metrics, showcasing 
clear  progress  towards  more  community-centered  or  family-oriented  care  settings.  In 
contrast,  Italy  exhibited  the  largest  increase  in  the  share  of  children  in  residential  care, 
escalating  by  11.5  pp.  to  59.1%.  Despite  the  goal  set  in  its  ECG  action  plan  to  reduce 
residential care to zero, Greece recorded in 2025 the highest share at 84.5%.  As regards 
measures to ensure that the best interests of the child as well as their overall situation and 
individual needs are considered when placing them in alternative care, full compliance was 
defined  as  consistent  application  of  a  standardised  procedure  on  determination  of  the 
child’s  best  interests.  Such  a  procedure  should  ensure  adequate  child  participation  and 
allow the views of the child to be given due weight in accordance with age and maturity. 

75 

 
 
 
 
 
 
 
Table  10:  Implementation  of  provisions  of  ECG  Recommendation  on  organisation  of 
alternative care 

The best interests of the 
child as well as their 
overall situation and 
individual needs 
considered when placing 
them in alternative care 
Partial 
Partial 
Wide 
Partial 
Partial 
Partial 
Wide 
Wide 

Wide 
Partial 
Wide 
Partial 
Partial 
Wide 
Wide 
Wide 
Wide 
Partial 
Partial 
n/a 
Partial 
Wide 
 Partial 
Partial 
Wide 
Partial 
Full 

Austria 
Belgium 
Bulgaria 
Croatia 
Cyprus 
Czechia 
Estonia 
Denmark 

Finland 
France 
Germany 
Greece 
Hungary 
Ireland 
Italy 
Latvia 
Lithuania 
Luxembourg 
Malta 
Netherlands 
Poland 
Portugal 
Romania 
Slovakia 
Slovenia 
Spain 
Sweden 

Measures to ensure the 
transition of children 
from institutional care to 
quality family-based care 

Sufficient measures to 
support independent 
living and social 
integration of children 
leaving alternative care 

Partial 
Limited 
Partial 
Limited 
Partial 
Wide 
Partial 
Partial 

Limited 
Partial 
Limited 
Limited 
Partial 
Full 
Limited 
Full 
Wide 
Limited 
Wide 
Limited 
Wide 
Partial 
Wide 
Partial 
Partial 
Limited 
Wide 

Partial 
Limited 
Wide 
Limited 
Partial 
Wide 
Wide 
Partial 

Partial 
Partial 
Limited 
Partial  
Partial 
Partial 
Partial 
Wide 
Wide 
Wide 
Wide 
n/a 
Limited 
Partial 
 Wide 
Partial 
Partial 
Partial 
Full 

Source: European Commission, based on information from Child Guarantee Coordinators. See Annex III for 
methodological description.  

Out  of  all  Member  States,  Sweden  stands  out  as  the  one  with  the  highest  degree  of 
compliance in this regard. Since 2020, the provisions of the UN Convention on the Rights 
of the Child are part of the national legislation, imposing a clearer obligation on courts and 
legal  practitioners  to  apply  the  rights  that  follow  from  the  CRC  in  deliberations  and 
assessments that are part of decision-making processes in cases and matters concerning 
children. In Bulgaria, the Child Protection Act prioritizes family-based care and the Social 
Services  Act  forbids  residential  care  for  children  under  three  years,  except  in  cases  of 
severe disability. A similar prohibition was introduced in Romania where child protection 
bodies  ensure  individualised,  judicially  reviewed  measures.  In  Denmark,  supportive 
measures  delivered  in  home  settings  are  systematically  preferred  over  placement  in 
alternative  care,  and  an  individual  assessment  of  child’s  needs  and  best  interest  and 
development of a personalised intervention plan are required. Placement in alternative care 
without child’s and custodian’s consent can only be undertaken if there is a risk of serious 
harm to the health or the development of the child. Estonia promotes family-based care 

76 

 
 
 
and submits failed placements to analysis with view to improve support. Children’s voices 
are central in all decisions and monitored through regular follow-ups. While all Member 
States formally acknowledge the principles of deinstitutionalisation of alternative care and 
of the best interest of the child, in some cases it is not clear how those principles are put in 
practice  (see  question  marks  and  assessments  as  ‘limited  compliance’  in  Table  10  and 
respective sections of country profiles in Annex III).    

As regards measures to support independent living and social integration of youth 
leaving alternative care, full compliance with ECG Recommendation was defined as 
existence  of  a  robust  system  of  support  for  transition  to  adulthood.  Such  support 
should be available to youth leaving alternative care until they are integrated in the labour 
market. Sweden appears as the best performer also in this respect. Social services have a 
legal  duty  to  provide  continued  support  both  during  and  after  a  placement  of  a  young 
person in alternative care. After a placement ends, the social services provide structured 
follow-up  and  practical,  emotional  and  social  support.  This  includes  help  with  finding 
housing,  managing  money,  planning  for  school  or  work,  and  offering  practical  and 
emotional guidance. The system emphasises early preparation, continuity and participation 
from the young person and ensures that each young person has access to trustworthy adults. 
In  widely  compliant  Bulgaria,  monthly  benefits  equal  to  the  poverty  line  support 
individuals aged 18–21 years leaving care establishments. Specialised legislation ensures 
individual plans for independent living, training and life-skill programs. ESF + funding is 
used for counselling, career guidance and psychosocial support. In addition, the Bulgarian 
action plan  for  the  implementation  of  ECG includes  measures  to  support  young people 
leaving alternative care by strengthening social worker and mentor capacity and testing 
support  for  employment,  social  skills,  housing  and  family  planning.  Meanwhile,  in 
Germany, the development of a database to better monitor life trajectories of care leavers 
is  the  only  measure  that  specifically  targets  children  leaving  alternative  care,  who 
otherwise need to rely on general measures to support independent living. According to 
the German 2024 progress report, care leavers are subject to poverty, unemployment and 
mental illness at an above-average rate. 

Deinstitutionalising alternative care 

The ‘Development of services promoting and effectively supporting foster care in a family environment’ 
is an ESF+-funded initiative in Lithuania, supporting the transition from institutional care to family-based 
solutions by strengthening foster care across 60 municipalities. Foster families receive tailored assistance 
from professionals who work together to meet the needs of each child. So far, more than 5000 children 
have benefited from such integrated support. 

3.10  Access to justice  

The EU Strategy on the Rights of the Child, of which the European Child Guarantee 
is a deliverable, covers child-friendly justice as one of its six thematic areas. While the 
Strategy is universal in scope (i.e. unlike ECG, it is not limited to children at risk of poverty 
or other disadvantage), children in need are disproportionately more likely to be in contact 
with justice system and to be not treated fairly. Therefore, it is pertinent to mention this 
aspect  in  the  context  of  analysing  compliance  of  Member  States  with  the  ECG 
Recommendation and when mapping the options for its future strengthening. A supportive 
legal  system  that  protects  vulnerable  children,  reduces  revictimization  and  promotes  a 
child-friendly environment where children can voice their views in decisions that affect 

77 

 
 
 
their  lives,  not  only  protects  their  rights  but  contributes  to  breaking  the  cycle  of 
disadvantage. Child friendly justice is especially important for children in poor households 
as it can often remove the barriers that poverty creates in accessing and navigating the legal 
system. By offering simplified procedures, accessible information, free legal assistance, 
and  supportive  environments,  these  initiatives  help  ensure  that  children  who  lack 
resources,  guidance,  or  institutional  trust  can  still  understand  their  rights,  participate 
meaningfully in decisions affecting them and avoid outcomes where poverty deepens their 
vulnerability.  

Safeguarding dignity, promoting reintegration in society and preventing reoffences 
are the key elements of dealing with children who are in conflict with law. Those aims 
are  included  in  the  Directive  (EU)  2016/800  on  procedural  safeguards  for  children 
suspected or accused of offences (106). The Directive establishes minimum standards for 
procedural guarantees, including the right to an individual assessment of their individual 
circumstances, needs and vulnerabilities, the results of which must inform and guide any 
decision taken with regards to the child throughout the proceedings. This is of particular 
importance for allowing the competent authorities to understand the different factors, such 
as poverty, which may have motivated or driven the child to commit the crime of which 
they  are  accused,  to  prevent  discriminatory  treatment  and  to  ensure  that  support  and 
protection  measures  are  ordered,  where  required.  The  Commission  is  monitoring  and 
enforcing the complete and correct implementation of Directive 2016/800. Infringement 
proceedings  for  the  incomplete  transposition  of  the  Directive  are  pending.  Once  these 
proceedings are closed, the non-conformity stage of the infringement procedure will be 
opened. 

The Directive also requires children to be assisted by a lawyer when they are subject 
to criminal proceedings (107). Where mandatory legal aid is provided, the costs are usually 
borne, in  the first  instance, by the State unless a means test in accordance with the EU 
Legal Aid  Directive  (108)  is  already  applied  at  that  stage  of  the  proceedings.  However, 
Member States may recover the costs of legal aid where a person is found guilty, subject 
to an often very strict means test, which may only exclude persons who already are below 
or  just  short  of  the  poverty  line  from  the  recovery  (109). A  good  practice  to  ensure  that 
children from a disadvantaged socio-economic background are not burdened by such costs 
can be found,  for instance, in  Belgium,  where  children always  receive legal  aid  free of 
charge, without a means test (110). 

(106) See footnote on Directive (EU) 2016/800, above. 

(107) Directive (EU) 2016/800 of the European Parliament and of the Council of 11 May 2016 on procedural 
safeguards  for  children  who  are  suspects  or  accused  persons  in  criminal  proceedings  (OJ  L  132, 
21.5.2016, pp. 1–20). Article 6. 

(108) Directive (EU) 2016/1919 of the European Parliament and of the Council of 26 October 2016 on legal 
aid for suspects and accused persons in criminal proceedings and for requested persons in European 
arrest warrant proceedings, OJ L 297, 4.11.2016, pp. 1–8. 

(109) See also Commission Recommendation of 27 November 2013 on the right to legal aid for suspects or 
accused persons in criminal proceedings, point 6, OJ C 378 of 24.12.2013, p. 11-14, according to which, 
when the legal aid is for a child, the child's own assets should be taken into account and not those of 
their parents or holder of parental responsibility. 

(110)  https://www.justiceinitiative.org/uploads/41ed2da7-a5b5-4bb7-b32d-83676c83f6ba/eu-legal-aid-

belgium-20150427.pdf  

78 

 
 
 
Another  important  aspect  is  family  law.  The  Brussels  IIb  Regulation  (Council 
Regulation (EU) 2019/1111) (111) supports child friendly justice by setting rules for cross 
border family law cases, including custody, parental responsibility and child abduction. A 
key  feature  is  its  emphasis  on  children’s  right  to  be  heard,  ensuring  their  views  are 
considered in decisions that directly affect them. By requiring courts to adapt procedures 
to children’s age and maturity, the Regulation helps make justice systems more responsive, 
protective and respectful of children as rights holders. 

3.11  Outreach and awareness raising 

To deliver the expected results, the benefits made available to the  people in need, must 
also  be  taken  up  by  them.  Research  shows  that  this  is  not  always  the  case.  In  order  to 
address the potentially similar challenge of organised but unclaimed free services under 
the ECG, § 11 (d) of the Recommendation guides the Member States to “develop effective 
outreach measures towards children in need and their families”. Such measures should be 
organised  “at  regional  and  local  level  and  through  educational  establishments,  trained 
social workers, family-support services, civil society and social economy organisations”. 
Their aim is to raise awareness and facilitate the take-up of the services covered by the 
ECG Recommendation. For purposes of the country-specific assessment, full compliance 
with this guidance was defined as a widely implemented, targeted and proactive approach 
pursued at local level – by authorities or publicly supported NGOs. 

Integrated family services 

In Belgium, the Houses of the Child ('Huizen van het Kind') represent a robust example of integrated 
family services, aiming to deliver a comprehensive, preventive support system at  the local level. These 
local collaborative networks are structured as partnerships, providing services either co-located under one 
roof or as decentralised satellites across multiple  sites. The model is present in Flanders and Brussels, 
with  227  active  Houses  serving  294  municipalities.  They  integrate  services  such  as  healthcare,  early 
childhood  education  and  parenting  support,  coordinated  often  by  a  dedicated  official  from  the  local 
authority.  Houses  of  the  Child  exemplify  effective  collaboration  between  healthcare  providers, 
educational  institutions,  and  social  services,  promoting  social  cohesion  and  supporting  families  with 
preventive care and cross-domain support. 

Only  Denmark  seems  to  be  fully  compliant  with  the  ECG  Recommendation  as  regards 
outreach, and this thanks to child protection measures, which predate the European Child 
Guarantee. The Danish municipalities are formally obliged to monitor the living conditions 
of  all  children  and  youth  within  their  territories.  The  supervisory  duties  should  be 
discharged  in  a  manner  enabling  the  municipality  to  identify  as  soon  as  possible  any 
instances where a child might need special support. In each such instance, the municipality 
has  a  duty  to  ensure  that  a  thorough  assessment  of  the  child’s  (and  their  family’s) 
circumstances is carried out, resulting in an informed decision on whether to take measures 
to  support  the  child.  The  supportive  measures  may  entail  family  treatment,  supported 
accommodation outside of the home and a permanent contact person for the child or the 
family. The support provided by the municipality is intended to ensure that all children and 
young  persons  have  the  same  opportunities  for  care,  learning,  personal  development, 
health,  well-being,  and  for  living  an  equally  independent  adult  life  as  their  peers.  The 
monitoring duties of the municipalities are supported by a universal obligation to notify 

(111) See footnote in Commission Recommendation of 27 November 2013 on the right to legal aid for suspects 

or accused persons in criminal proceedings, above. 

79 

 
 
 
the authorities in case of becoming aware of a child experiencing neglect. Professionals 
and public workers have an expanded obligation to notify the authorities. Outreach services 
in social welfare are statutory also in Finland. Other Member States where relatively much 
attention  is  paid  to  outreach,  communication  and  awareness-raising  actions  include 
Germany  (where  particular  attention  is  paid  to  refugee  and  homeless  children),  Malta 
(where information on all government services have been consolidated at a single website, 
a dedicated freephone and a network of one-stop-shops), and Luxembourg (which aims to 
reach the most disadvantaged with information on preventive and curative healthcare). In 
addition, Greece and Italy organise outreach to children in remote areas through mobile 
health  units,  while  Slovenia  and  Slovakia  focus  their  outreach  activities  on  Roma 
population.  On  other  hand,  the  Estonian  2024  progress  report  mentions  as  part  of  the 
stakeholder  feedback  that  it  is  important  to  increase  social  awareness,  as  well  as 
community assistance  and support for children  and families in  the target group.  For an 
overview of compliance with the guidance on outreach, please see Table 11 at the end of 
the next section. 

Outreach to children in remote areas 

In  Greece,  reaching  children  in  remote  areas,  including  islands,  is  effectively  managed  through  the 
deployment of Mobile Health Care Units. These units are designed to deliver specialised medical services 
that go beyond what is typically offered by local healthcare systems in remote locations. This initiative 
ensures timely and direct access to healthcare for children who might otherwise face significant barriers 
due to geographical isolation. By focusing on the specific needs of these communities, Greece highlights 
the importance of adaptive strategies in overcoming service delivery challenges, with these Mobile Units 
serving as a vital lifeline for health care, particularly in areas that are difficult to reach via traditional 
infrastructure. 

3.12 

Involvement of stakeholders 

The  ECG  Recommendation  stressed  the  need  for  an  adequate  involvement  of 
stakeholders in the design, delivery and monitoring of policies and quality services for 
children. Their contribution is key for mapping needs, gaps and challenges, as well as for 
proper adaptation  of the action plans to  national, regional and local  circumstances. The 
types of stakeholders who should be involved include – but are not limited to – national, 
regional  and 
local  authorities,  social  economy  organisations,  non-governmental 
organisations  promoting  children’s  rights,  and  children.  The  ECG  Recommendation 
specifically  calls  for  stakeholder  involvement  in  identification  of  children  in  need 
(§ 11 (b)),  preparation  of  the  national  action  plans,  their  implementation,  as  well  as  in 
ongoing monitoring and retrospective evaluation (§ 11 (e)). Finally, stakeholders have also 
a role to play – as recipients of information and possible followers of good practices – in 
the  Commission  activities  to  strengthen  awareness  about  ECG  and  to  disseminate  the 
results  and  good  practice  examples.  Eight  Member  States  appear  to  be  so  far  fully 
compliant with the recommendation to involve various types of stakeholders (ministries 
and  state  agencies;  local/regional  governments;  NGOs;  children)  throughout  the 
preparation,  implementation,  monitoring  and  evaluation  of  the  action  plan:  Bulgaria, 
Estonia, Greece, Italy, Lithuania, Malta, Slovakia and Sweden. The formats and modalities 
for stakeholder consultations vary, but they often entail creation of permanent governance 
and advisory groups (112). 

(112) In the Italian case, the National Steering Committee is chaired by the high officials of the Ministry of 
Labour and Social Policies and comprises representatives of Istituto degli Innocenti (est. 1445, one of 
the oldest organisations that defend and promote the rights of children, bringing together practice and 

80 

 
 
 
Another example of good practice on stakeholder involvement comes from Ireland, where 
civil  society  organisations  are  in  a  close  working  relationship  with  the  Department  of 
Children,  Equality,  Disability,  Integration,  and  Youth.  Ireland  also  hosted  a  meeting  of 
Child  Guarantee  National  Coordinators  in  2023,  where  CSOs  were  invited.  Ireland’s 
National  Action  Plan  on  the  EU  Child  Guarantee  contains  a  commitment  to  pilot  the 
development of Child Poverty Local Area Action Plans. In the 2024 budget, funding was 
secured  for four geographic areas to  develop  tailored and innovative  responses to  child 
poverty. To date, the Department of Children, Disability and Equality has provided funding 
for over two years for the rollout of these initiatives. For a full overview of the degree of 
stakeholder involvement, including that of children, see Table 11. 

Table 11: Implementation of provisions of ECG Recommendation on outreach measures 
and involvement of stakeholders 

Adequate information and outreach 
measures implemented to ensure that 
all children in need benefit 

Austria 
Belgium 
Bulgaria 

Croatia 
Cyprus 
Czechia 
Estonia 
Denmark 
Finland 
France 
Germany 
Greece 
Hungary 
Ireland 
Italy 
Latvia 
Lithuania 
Luxembourg 
Malta 
Netherlands 
Poland 
Portugal 
Romania 
Slovakia 
Slovenia 
Spain 
Sweden 

Partial 
Limited 
Partial 

Partial 
Partial 
Partial 
Wide 
Full 
Wide 
Partial 
Wide 
Wide 
Partial 
Partial 
Wide 
Limited 
Partial 
Wide 
Wide 
n/a 
Limited 
Partial 
 Wide 
Wide 
Wide 
Partial 
Partial 

Involvement of stakeholders 
throughout the preparation, 
implementation, monitoring and 
evaluation of the action plan 
Wide 
Partial 
Full 

Partial 
Wide 
Partial 
Full 
Partial 
Wide 
Wide 
Wide 
Full 
Partial 
Wide 
Full 
Partial 
Full 
Wide 
Full 
Wide 
Limited 
Wide 
Partial 
Full 
Wide 
Wide 
Full 

Source: European Commission, based on information from Child Guarantee Coordinators. See Annex III for 
methodological description.  

theory), regional and local authorities, the National Association of Italian Municipalities, the National 
Council  of  Social  Workers,  the  National  Foundation  for  Social  Workers;  the  National  Council  of 
Psychologists;  the  national  federation  of  health  technicians  in  medical  radiology,  and  the  national 
federation of technical health professionals in rehabilitation and prevention. 

81 

 
 
 
 
4.  STAKEHOLDERS’  VIEWS  ON  THE EUROPEAN CHILD GUARANTEE  AND  ITS  POSSIBLE 

STRENGTHENING 

This  section  briefly  presents  the  views  of  key  stakeholders  during  the  implementation 
phase of the ECG, as well as their approaches to its possible strengthening.   

4.1 

European Parliament 

The  ECG  was  initiated  by  the  European  Parliament  (2014-2019)  as  a  three-phase 
preparatory  action (113). The European Parliament has shown  continuous support to  the 
European  Child  Guarantee  through  its  resolutions  and  establishment  of  a  dedicated 
working group within its Committee on Employment and Social Affairs Committee. In its 
resolution of 29 April 2021 (2021/C 506/15), the European Parliament welcomed and set 
the  Parliament’s  position  on  the  proposed  European  Child  Guarantee,  urging  Member 
States and EU institutions to ensure its effective implementation to combat child poverty 
and social exclusion.  

The European Parliament has also repeatedly called for an increase in the funding 
for the European Child Guarantee by means of a dedicated budget of at least EUR 20 
billion  (114).  On  21  November  2023,  the  European  Parliament  adopted  a  resolution 
‘Children  first  –  strengthening  the  Child  Guarantee,  two  years  on  from  its  adoption’ 
(2023/2811(RSP)) to assess progress and call for stronger measures, better implementation 
and better monitoring of the European Child Guarantee two years after its adoption. On 19 
May  2022,  the  European  Parliament's Committee on  Employment  and  Social  Affairs 
established a Working Group on the implementation of the European Child Guarantee to 
reflect  the  institution’s  commitment  to  strengthen  awareness  raising  and  monitor  the 
progress of the implementation of the Child Guarantee and its sustainability. It held over 
8  meetings  focusing  on  the  state  of  play  of  the  implementation  of  the  European  Child 
Guarantee,  exchanges  of  views  with  the  Commission,  national  coordinators  (including 
from  Ireland,  Lithuania,  Poland,  Sweden,  Belgium),  and  the  civil  society.  It  also  held 
meetings  on  monitoring  and  evaluation  methodologies  of  ECG  and  EU  funding.  The 
Committee  had  decided  to  reestablish  its  working  group  on  Child  Guarantee  under  the 
2024-2029  term.  It  has  so  far  held  three  meetings  to  discuss  the  state  of  play  and 
strengthening  of  the  Child  Guarantee,  as  well  as  provision  of  integrated  services  for 
children in need and need for sustainable financing of the initiative.  

(113) Phase I assessed the feasibility, efficiency and overall benefits of an EU Child Guarantee Scheme and 
made  concrete  suggestions  for  improving  policies  and  programmes  at  EU  and  (sub-)national  levels. 
Phase  II  of  the  produced  a  detailed  study  exploring  costs  and  benefits  of  the  free  provision  of  (i) 
education including school-based activities and full meals, (ii) early childhood education and care, (iii) 
regular health examinations and follow-up treatment to all children at risk of poverty or social exclusion, 
and (iv) providing services aimed at preventing and fighting child homelessness. For the Phase III of the 
Preparatory Action, the European Commission has partnered with the UNICEF. The aim of this phase 
was to test how the European Child Guarantee could work in practice and provide recommendations for 
its successful design and implementation. As part of this engagement, UNICEF worked with national 
and local governments from Bulgaria, Croatia, Germany, Greece, Italy, Lithuania, and Spain and key 
national and local stakeholders in these countries. 

(114) Resolutions of 7 April 2022 on the EU’s protection of children and young people fleeing the war in 
Ukraine,  of  5 October  2022  on  the  Situation  of  Roma  people  living  in  settlements  in  the  EU, of  13 
December 2022 on the Equal rights for persons with disabilities, and of 21 November 2023 on Reducing 
inequalities and promoting social inclusion in times of crisis for children and their families. 

82 

 
 
 
4.2 

The Council 

Over the past decade, the Council of the European Union has repeatedly highlighted 
the  need  for  stronger  action  to  tackle  child  poverty  and  promote  children’s  well-
being.  Through  several  sets  of  conclusions  adopted  between  2010  and  2020,  covering 
issues such as preventing child poverty, strengthening early childhood education and care 
and  investing  in  the  economy  of  well-being,  the  Council  called  on  Member  States  to 
improve income support for families, ensure access to quality services and invest in early 
childhood  development.  These  discussions  built  on  the  principles  of  the  Commission 
Recommendation Investing in Children: Breaking the Cycle of Disadvantage and formed 
an important policy foundation for the adoption in 2021 of the European Child Guarantee. 
In 2022, the Council adopted Conclusions on the EU Strategy on the Rights of the Child, 
which set out the Member States’ political support for implementing the EU Strategy on 
the Rights of the Child – of which the European Child Guarantee is a deliverable – and call 
for stronger action across the EU to promote and protect children’s rights in all policies. 

In  March  2026,  the  Council  adopted  a  set  of  Council  Conclusions  on  investing  in 
children: strengthening child well-being, social inclusion and combating child poverty 
in the European Union. These Council Conclusions promote a holistic, rights-based and 
preventive  approach  that  puts  children  at  the  centre  of  policymaking.  They  emphasise 
investing early in children, especially through high-quality and accessible services such as 
early  childhood  education  and  care,  healthcare,  nutrition,  housing  and  education,  while 
reinforcing the implementation of the European Child Guarantee and progress towards the 
EU’s  2030  poverty  reduction  targets.  The  Conclusions  call  on  Member  States  and  the 
European  Commission  to  improve  coordination,  funding,  data  and  child  participation, 
ensuring  that  policies  across  all  sectors  effectively  reduce  inequalities  and  break  the 
intergenerational cycle of poverty. 

Several Council Presidencies have put a great emphasis on the ECG implementation, 
in particular through organising meetings of Child Guarantee Coordinators or related high-
level events (Spain, Czechia, France, Belgium, Poland, Denmark, and upcoming meetings 
in Cyprus and Ireland). 

4.3 

Committee of the Regions 

The  Committee  of  the  Regions  has  demonstrated  a  steadfast  commitment  to 
supporting the implementation of the ECG at local level, notably through three opinions 
specifically  dedicated  to  this  Council  Recommendation,  respectively  adopted  in  2021, 
2024  and  2026 (115).  Additional  opinions  also  address  child  poverty  and  the  ECG (116). 
Besides  underscoring  the  vital  role  of  local  and  regional  authorities  in  reducing  child 
poverty and the roll-out of services covered by the ECG, greater involvement, design of 
integrated local Child Guarantee action plans and a dedicated budget of EUR  20 billion 
are among the main calls featuring those three opinions. Other calls also relate to the need 
for cross-sectoral cooperation and an integrated approach for services delivery, as well as 
robust monitoring frameworks to track progress.   

(115)  Opinions  of  12  October  2021  on  the  EU  strategy  on  the  rights  of  the  child  and  the  European  Child 
Guarantee,  of  17-18  April  2024  on  Improving  the  social  inclusion  of  children  by  implementing  the 
European Child Guarantee at local and regional level, of 4-5 March 2026 on Child wellbeing and child 
benefits.  

(116)  See for instance Opinion of 13-15 October 2025 on the EU Anti-Poverty Strategy.   

83 

 
 
 
Implementing ECG at the local level in Portugal 

Portugal exemplifies the successful involvement of local authorities in the implementation of the child 
guarantee. By formalising commitment memoranda with Intermunicipal Communities and protocols with 
Social Action Local Councils, Portugal has established numerous Child Guarantee Local Centres across 
the nation. They have constituted 64 centres, involving over 600 representatives from various sectors of 
local  authorities.  This  centralised  approach  is  complemented  by  capacity  building  training.  The 
coordinated efforts between these centres and national bodies like the Social Security Institute highlight 
Portugal’s commitment to a comprehensive, integrated approach in tackling child poverty and enhancing 
social protection benefits.  

4.4 

European Economic and Social Committee 

In its 2021 opinion (117), the European Economic and Social Committee called for a more 
ambitious, rights-based and integrated approach to tackling child poverty across the EU, 
mainstreaming  of  child  policies  throughout  different  policy  areas  and  highlighting  that 
effective  action  requires  a  whole-of-society  approach  involving  EU,  national  and  local 
levels,  as  well  as  civil  society  and  children  themselves.  The  opinion  also  stressed  the 
importance  of  targeting  the  most  vulnerable  children,  improving  data  and  monitoring, 
strengthening  governance  through  coordinators  and  participation  mechanisms.  The 
Committee  supported  efforts  to  better  implement  the  European  Child  Guarantee  and 
combat  child  poverty  through  its  statements  and  opinions,  most  recently  in  2025  in  its 
opinion  on  the  EU  Anti-Poverty  Strategy,  which  stressed  the  importance  of  access  to 
services, social and support services and calling for eradication of poverty – not only its 
reduction (118). 

4.5 

Civil society  

The ECG was greeted by the civil society as a historic step towards the protection of 
the rights of children in the European Union (119). Consultation meetings with the EU 
Alliance for Investing in Children, which brings together civil society organisations active 
in the domain of child rights took place in May 2024 and April 2025. The state of play and 
way forward on ECG were discussed on those occasions. Representatives of civil society 
mentioned  several  shortcomings  in  implementation  at  the  national  level,  as  well  as 
provided proposals for improvement, including the need for stronger focus on support to 
families  and  prevention  (also  preventing  family  separation),  integration  of  services  for 
children,  securing  high  quality  of  services,  need  for  better  governance  (including 
cooperation with regional and local authorities and a more structured cooperation with the 
civil society).  

An  Implementation  Dialogue  on  measures  to  combat  poverty,  the  Council 
Recommendation on Minimum Income ensuring active inclusion and the European Child 
Guarantee, was held by Executive Vice-President Roxana Mînzatu on 24 February 2026, 
providing many insights into the strong and weak points of ECG from the perspective of 

(117)  SOC/682 – EESC-2021-01883-00-01-AC-TRA (EN). 

(118)  SOC/829 – EESC-2025-00984-00-01-AC-TRA (EN). 

(119)  EU Alliance for Investing in Children welcomes the EPSCO Council adoption of the ECG 

https://alliance4investinginchildren.eu/eu-alliance-for-investing-in-children-welcomes-the-epsco-
council-adoption-of-the-council-recommendation-establishing-the-european-child-guarantee/.  

84 

 
 
 
 
various stakeholders. This was complemented by a structured dialogue with civil society 
organisations working in the EU employment and social policies domain, which provided 
further  format  for  discussing  the  existing  gaps  in  the  European  Child  Guarantee 
implementation  and  ways  to  enhance  it.  33  participants  representing  31  EU-level  civil 
society organisations raised issues such as: importance of sustainable funding for child-
related policies, peer reviews and exchanges of good practices, more focus on vulnerable 
groups (e.g. Roma children or children in alternative care) and prevention measures.  

Child  poverty  was  also  one  of  the  aspects  considered  as  part  of  the  consultations 
supporting the preparation of the EU Anti-Poverty Strategy (APS). An open public 
consultation  was  launched  from  July  2025  to  October  2025.  The  online  questionnaire, 
available in all 24 EU languages, invited citizens and stakeholders to share their views on 
the root causes of poverty and on national and EU-level actions to combat and prevent it. 
In total, 126 responses – most of them from civil society organisations – were received. 
The  questionnaire  combined  closed  and  open-ended  questions,  with  most  items  using 
Likert-scale ratings to assess relevance and effectiveness, alongside opportunities for more 
detailed qualitative input. This approach enabled the collection of both quantitative and 
qualitative evidence. Among the proposed measures, support for universal access to quality 
services for children, including healthcare, healthy nutrition, and adequate housing, with 
the  aim  of  ensuring  equal  developmental  opportunities,  received  the  highest  mean 
effectiveness rating (4.75). Consistent with this finding, children living in poverty were 
most frequently identified as the group requiring targeted intervention, with 110 out of 126 
respondents highlighting this. Moreover, the respondents could provide recommendations, 
through open text responses on actions to be taken to prevent and fight child poverty.  

Universal  access  to  quality  early  childhood  education  and  care  stood  out  as  a 
frequently cited priority. Contributors consistently emphasised free or affordable access 
to  early  childhood  education  and  care  for  children  aged  0-3  and  universal  pre-primary 
education for  ages  3-6,  viewing  education as  fundamental  to  breaking  intergenerational 
poverty  cycles.  Securing  adequate  family  income  support  appeared  as  another  frequent 
recommendation. Contributors called for universal child benefits to be supplemented for 
families experiencing poverty to ensure that they have resources to meet basic needs and 
support children’s development and participation. Free or affordable nutrition and healthy 
school meals were repeatedly highlighted as essential. Numerous contributors advocated 
universal  access  to  nutritious  school  meals,  fresh  fruit  schemes  and  food  assistance, 
recognising nutrition as foundational for child development and school participation. Safe 
and  affordable  housing  was  identified  as  another  critical  priority,  with  contributors 
emphasising  that  housing  precarity  directly  undermines  child  development  and  other 
support measures. Housing-led approaches and prevention of family homelessness were 
frequently mentioned. In addition, respondents emphasised the need for targeted measures 
for marginalised children, particularly Roma children, children with disabilities, migrant 
children,  homeless  children  and  children  in  alternative  care.  Finally,  strengthened  and 
sustained ECG funding, with dedicated budgets and robust monitoring frameworks with 
disaggregated data, were consistently recommended to ensure effective implementation. 

85 

 
 
 
 
4.6 

Children 

A consultation with children on the review of progress made in the implementation 
of  the  European  Child  Guarantee  was  conducted  under  the  EU  Children’s 
Participation Platform. It ran between October and December 2025 through an online 
survey, complemented by interviews and focus groups. A total of 41,736 children took part 
in  the  consultation,  including  41,518  respondents  to  the  online  survey,  173  children 
participating in focus group interviews, and 45 children interviewed individually. Survey 
participants were aged 8 to 17 and came from all 27 EU  Member States, some of them 
being  EU  citizens  living  abroad.  The  largest  number  of  survey  participants  were  from 
Poland (83%) (120), followed by Romania (5%), Bulgaria (5%), and Portugal (3%). Survey 
respondents were broadly spread across the age range, with the largest shares aged 13 to 
15. Just over half (51%) identified as girls. Across all topics, children shared a consistent 
message. While many recognise that services exist and that progress has been made, access 
is  not  always  experienced  equally,  and  equal  rights  do  not  always  translate  into  equal 
chances  in  everyday  life.  Children  repeatedly  linked  inclusion  and  fairness  to  practical 
conditions, whether families can afford costs, whether support is available when needed, 
whether adults intervene when problems arise and whether children are treated with dignity 
and listened to.  

Children considered education as central to their futures and schools were in general 
seen as inclusive. However, the respondents also noted that not all children are able to 
benefit equally from school.  

Children described health as more than being free from illness. They linked it to mental 
wellbeing,  everyday  habits  and  access  to  help  when  needed,  including  seeing  a  family 
doctor, accessing specialist or mental health services, and speaking to school-based staff 
such as nurses or counsellors where available. While many consulted children believed 
that  most  children  have  some  access  to  healthcare  and  health  information,  views  were 
mixed, particularly regarding timely access to doctors, specialist care and mental health 
support. Long waiting times, travel barriers and costs for services such as dentistry and 
therapies were repeatedly identified as barriers. Mental health support was described as 
unevenly available and slow to access, including within schools. Children often said they 
do not always know where to go for help, especially if parents cannot act.  

Children  described  housing  as  a  basic  foundation  for  safety,  dignity,  health  and 
learning. A majority of surveyed children believed that most children live in stable and 
comfortable homes, but some children reported concerns about insecurity, poor housing 
conditions and unequal access, particularly for children in poverty, in alternative care, or 
from  marginalised  groups.  Children  described  inadequate  housing  in  concrete  terms, 
including  cold  homes,  damp,  unsafe  buildings,  overcrowding  and  lack  of  privacy. 

(120) The high number of respondents from Poland can be attributed to the exemplary outreach: the survey 
was circulated through existing digital communication systems (e-registers), which schools use to share 
routine information with pupils and parents. This approach supported wide reach (while aligning with 
the parental control requirements) and contributed to the high volume of survey responses. This natural 
experiment points to the importance and potential of involving schools in outreach activities linked to 
the  implementation  of  European  Child  Guarantee.  The  full  report  from  consultation  with  children  is 
available  at:  https://eu-for-children.europa.eu/system/files/2026-03/Poverty-Social-Inclusion-Survey-
Full-Report_2026.pdf. 

86 

 
 
 
Affordability pressures, rent and utility costs, and risks of homelessness were highlighted, 
alongside concerns about young people leaving care without sufficient housing support.  

Children  described  access  to  healthy  food  as  essential,  but  not  accessible  for  all 
children  every  day.  Survey  responses  showed  mixed  views  on  whether  children  can 
access healthy food at home and at school, with particular gaps identified in relation to free 
school meals, food provision for older pupils, and access during school closures. Consulted 
children linked unequal access to household income, the higher cost of healthier food, and 
limited  or  poor-quality  school  provision.  Quality,  variety  and  taste  were  described  as 
affecting whether children actually eat the food provided.  

Children  described  inclusion  as  shaped  by  poverty,  discrimination  and  whether 
adults take responsibility to act. Many children said that poverty limits participation in 
everyday activities and creates shame and exclusion, even where services exist. Children 
described  discrimination  linked  to  disability,  ethnicity,  migration,  gender  and  other 
differences,  and  said  that  passive  or  inconsistent  adult  responses  undermine  safety  and 
belonging.  Trusted  adults,  mental  health  support  and  environments  where  children  are 
listened to were described as central to feeling included. 

4.6.1 

Children’s suggestions and recommendations 

Children’s suggestions and recommendations were consistent across countries and topics. 
Key  thematic  recommendations  emerging  from  the  consultation  evidence  are  presented 
below.  

•  Making  access  affordable  in  practice:  Children  repeatedly  asked  for  costs  to  be 
reduced so that participation in school, healthcare, housing and access to food does 
not  depend  on  family  income.  This  included  covering  or  subsidising  school 
activities, reducing out of pocket healthcare costs, supporting rent and utility bills 
and expanding free or affordable school meals.  
Improving access and timeliness of services: Children emphasised the importance 
of  faster  access  to  healthcare,  mental  health  support,  learning  assistance  and 
housing support, particularly for children who need extra help. Waiting times and 
delays were described as worsening problems and increasing inequality.  

• 

•  Ensuring  safety,  dignity  and  respectful  treatment:  Children  asked  for  stronger 
action against bullying, discrimination and unsafe conditions in schools, healthcare 
settings, homes and neighbourhoods. They stressed the importance of being treated 
with respect, having privacy protected and not being singled out when receiving 
support.  

•  Strengthening support for children facing greater barriers: Children highlighted the 
need  for  practical,  consistent  support  for  children  with  disabilities,  children  in 
poverty, children from minority backgrounds, migrant children and young people 
leaving care. They emphasised that support should work in everyday practice, not 
only exist on paper.  

•  Using schools as a key route to support and prevention: Schools were repeatedly 
identified  as  important  places  for  learning,  prevention,  health  support,  food 
provision and access to trusted adults, provided that services such as counsellors, 
nurses and learning support are consistently available.  

•  Listening to children and making participation meaningful: Children asked to be 
listened to  in decisions  that  affect  their lives, including in schools, communities 

87 

 
 
and services. They emphasised that participation should be meaningful, inclusive, 
and lead to visible change, rather than consultation without follow up. 

4.7 

Results of the Call for Evidence  

The Call for Evidence on strengthening of European Child Guarantee was open for 
feedback at Have Your Say portal from 12 March to 9 April 2026. Over 100 responses 
have been received (121), mostly from civil society organisations (31 operating at national 
or sub-national level and 30 at EU level). Local authorities were also well represented (18 
submissions, mostly from Portugal where local offices for ECG implementation have been 
established). A few Child Guarantee Coordinators and persons or institutions involved in 
in ECG implementation have also contributed. Geographically, Portugal, Spain and Italy 
were overrepresented, with a combined total of 40 responses. There were a few responses 
each from Belgium, France, Germany and the Netherlands, and not a single response from 
12 Member States (122). 

Regarding the scope of the ECG Recommendation, a respondent stated that there was 
no need for broadening it, “but rather a further strengthening of the political focus on its 
concrete implementation by 2030” (123). At the same time, several respondents pointed to 
groups  of  children  experiencing  specific  disadvantages  (e.g.  children  living  in  single-
parent  households,  Roma  children,  children  in  migration  and  children  with  behavioural 
issues), to  whose needs  implementers  of ECG should  pay particular attention. Children 
with  disabilities  were  mentioned  in  this  context  several  times,  including  a  call  for 
disaggregating this group into smaller ones, depending on the kind of disability (124). The 
need for strengthening through paying greater attention to delivery of specific services – 
already covered by the ECG or to be added to its scope – was also raised. Leisure, as “a 
fundamental  children’s  right  and  a  crucial  factor  for  well-being,  resilience  and  social 
inclusion”  (125)  and  psychological  consultations (126)  were  most  often  mentioned  in this 
context.   

As regards governance and funding aspects of the ECG, a suggestion to embed child 
poverty reduction targets within the European Semester has been made by one respondent 

(121) 108 responses via Have Your Say portal (including two submissions by the same respondent), and two 
responses from local authorities in Portugal, transmitted to the Commission by email by the Portuguese 
Child Guarantee Coordinator. The responses submitted via Have Your Say portal can be accessed online 
at https://ec.europa.eu/info/law/better-regulation/have-your-say/initiatives/17234-Strengthening-of-the-
European-Child-Guarantee_en. 

(122) Bulgaria, Croatia, Cyprus, Denmark, Estonia, Finland, Latvia, Luxembourg, Malta, Hungary, Romania, 
and Slovenia. From the remaining Member States, there was one or two responses per country.     

(123)  https://ec.europa.eu/info/law/better-regulation/have-your-say/initiatives/17234-Strengthening-of-the-

European-Child-Guarantee/F33390068_en.  

(124)    https://ec.europa.eu/info/law/better-regulation/have-your-say/initiatives/17234-Strengthening-of-the-

European-Child-Guarantee/F33390115_en.  

(125)    https://ec.europa.eu/info/law/better-regulation/have-your-say/initiatives/17234-Strengthening-of-the-

European-Child-Guarantee/F33389665_en.  

(126)    https://ec.europa.eu/info/law/better-regulation/have-your-say/initiatives/17234-Strengthening-of-the-
European-Child-Guarantee/F33389158_en,  https://ec.europa.eu/info/law/better-regulation/have-your-
say/initiatives/17234-Strengthening-of-the-European-Child-Guarantee/F33389840_en, 
https://ec.europa.eu/info/law/better-regulation/have-your-say/initiatives/17234-Strengthening-of-the-
European-Child-Guarantee/F33389961_en.  

88 

 
 
 
(127), while others were calling for strengthening of participatory governance (including 
structured engagement with youth organisations) (128) and better coordination between all 
ministries involved in delivery of services covered by the ECG (129). One the other hand, 
one  of  the  Portuguese  municipalities  stressed  the  need  for  decentralised  coordination 
mechanisms,  combined  with  stable  financing  (130),  while  Eurocities  called  for  fully 
recognising  cities  as  key  partners,  not  merely  implementers,  in  the  design,  governance, 
implementation and monitoring of the ECG (131). The calls for securing adequate funding 
for ECG implementation by earmarking a part of EU funds under the next MFF appeared 
very often (132), including from local authorities and EU-level civil society organisations 
bringing together family associations (133).   

Several submissions suggested for specific issues to be considered when implementing 
the  ECG.  Those  included  boosting  non-formal  activities  after  school  times  and  during 
holidays (134) and equipping people of all ages (beginning with 3 years-olds) with skills to 
react in the event of sudden cardiac arrest (135). The issue of first aid preparedness appeared 
also  in  context  of  expanding  provision  of  school  meals,  which  according  to  several 
respondents should be coupled with staff training on anaphylaxis (cases of allergic children 
dying  after  being  served  a  meal  at  school  are  quoted)  (136).  Another  issue  raised  in  the 
context of expansion of school meals has been the local sourcing of used foodstuffs, or at 

(127)    https://ec.europa.eu/info/law/better-regulation/have-your-say/initiatives/17234-Strengthening-of-the-

European-Child-Guarantee/F33387643_en.  

(128)  https://ec.europa.eu/info/law/better-regulation/have-your-say/initiatives/17234-Strengthening-of-the-

European-Child-Guarantee/F33390064_en.  

(129)  https://ec.europa.eu/info/law/better-regulation/have-your-say/initiatives/17234-Strengthening-of-the-

European-Child-Guarantee/F33389851_en.  

(130)  https://ec.europa.eu/info/law/better-regulation/have-your-say/initiatives/17234-Strengthening-of-the-

European-Child-Guarantee/F33390099_en.  

(131)  https://ec.europa.eu/info/law/better-regulation/have-your-say/initiatives/17234-Strengthening-of-the-

European-Child-Guarantee/F33390107_en.  

(132)  https://ec.europa.eu/info/law/better-regulation/have-your-say/initiatives/17234-Strengthening-of-the-
European-Child-Guarantee/F33390064_en,  https://ec.europa.eu/info/law/better-regulation/have-your-
say/initiatives/17234-Strengthening-of-the-European-Child-Guarantee/F33389650_en, 
, 
https://ec.europa.eu/info/law/better-regulation/have-your-say/initiatives/17234-Strengthening-of-the-
European-Child-Guarantee/F33390045_en,  https://ec.europa.eu/info/law/better-regulation/have-your-
say/initiatives/17234-Strengthening-of-the-European-Child-Guarantee/F33389158_en, 
https://ec.europa.eu/info/law/better-regulation/have-your-say/initiatives/17234-Strengthening-of-the-
European-Child-Guarantee/F33389585_en,  https://ec.europa.eu/info/law/better-regulation/have-your-
say/initiatives/17234-Strengthening-of-the-European-Child-Guarantee/F33389775_en.   

(133)  https://ec.europa.eu/info/law/better-regulation/have-your-say/initiatives/17234-Strengthening-of-the-
European-Child-Guarantee/F33389980_en,  https://ec.europa.eu/info/law/better-regulation/have-your-
say/initiatives/17234-Strengthening-of-the-European-Child-Guarantee/F33385716_en.  

(134)    https://ec.europa.eu/info/law/better-regulation/have-your-say/initiatives/17234-Strengthening-of-the-

European-Child-Guarantee/F33389158_en.  

(135)  https://ec.europa.eu/info/law/better-regulation/have-your-say/initiatives/17234-Strengthening-of-the-

European-Child-Guarantee/F33389650_en.  

(136)  https://ec.europa.eu/info/law/better-regulation/have-your-say/initiatives/17234-Strengthening-of-the-
European-Child-Guarantee/F33390062_en,  https://ec.europa.eu/info/law/better-regulation/have-your-
say/initiatives/17234-Strengthening-of-the-European-Child-Guarantee/F33389931_en, 
https://ec.europa.eu/info/law/better-regulation/have-your-say/initiatives/17234-Strengthening-of-the-
European-Child-Guarantee/F33389871_en.  

89 

 
 
 
least their procurement in line with Fair Trade principles (137). Finally, a significant number 
of respondents called for social service mentors who would support disadvantaged children 
from early childhood, or other measures to create an integrated, place-based approach to 
child wellbeing, with aim to establish a genuine dialogue between institutions, parents and 
children (138). 

(137)  https://ec.europa.eu/info/law/better-regulation/have-your-say/initiatives/17234-Strengthening-of-the-
European-Child-Guarantee/F33388955_en,  https://ec.europa.eu/info/law/better-regulation/have-your-
say/initiatives/17234-Strengthening-of-the-European-Child-Guarantee/F33387699_en.  

(138)    https://ec.europa.eu/info/law/better-regulation/have-your-say/initiatives/17234-Strengthening-of-the-
European-Child-Guarantee/F33387387_en,  https://ec.europa.eu/info/law/better-regulation/have-your-
say/initiatives/17234-Strengthening-of-the-European-Child-Guarantee/F33390107_en, 
https://ec.europa.eu/info/law/better-regulation/have-your-say/initiatives/17234-Strengthening-of-the-
European-Child-Guarantee/F33389788_en,  https://ec.europa.eu/info/law/better-regulation/have-your-
say/initiatives/17234-Strengthening-of-the-European-Child-Guarantee/F33389840_en.  

90 

 
 
 
 
 
5.  WAY FORWARD: NEEDS AND TOOLS TO STRENGTHEN ECG 

The  European  Child  Guarantee  has  already  inspired  numerous  reforms  and 
measures  for  children  in  need  across  the  entire  EU.  The  access  to  early  childhood 
education  and  care  (ECEC)  has  become  easier,  more  Member  States  have  offered  free 
school meals and children’s participation in decision making has increased significantly. 
But, while the number of children at risk of poverty or social exclusion who constitute the 
target  group  of  the  European  Child  Guarantee  has  not  decreased,  additional  challenges 
appeared. The Russian war of aggression affected millions of children in Ukraine, many 
of whom found refuge in the EU. The sudden spike in the costs of living put stress on many 
European  families  in  2022  and  2023  and  has  not  yet  fully  dissipated.  The  ongoing 
technological revolution has changed the ways in which children socialize and, through 
AI-generated fakes, increased vulnerability to cyberbullying. In response to all that, the 
efforts  for  implementation  of  the  ECG  need  to  intensify  at  all  levels,  from  local  and 
regional, to national and European.    

Funding quality public services for children is bringing high returns over the long 
term.  The  long-term  benefits  are  evident  both  at  individual  and  at  societal  levels.  For 
example,  eating  lunches  at  school  improves  health,  increases  levels  of  educational 
attainment  and  increases  life-time  earnings  (139).  Research  has  also  shown  that  for  the 
society  at  large,  health-related  programmes  for  children  bring  threefold  return,  while 
investments in education can deliver up to seven euros back for each euro invested (140). 
Public money invested in children not only supports them on their path towards a healthier 
and  more  prosperous  adulthood,  but  comes  back  revitalising  our  economies,  fostering 
social cohesion and improving Europe’s standing in the global competition. In addition to 
improving skills and competences of the next generation, such investment brings also more 
immediate  returns  through  higher  labour  market  participation  of  parents,  especially 
mothers. 

Given  such  high  returns,  the  services  covered  by  the  European  Child  Guarantee 
would gain to be prioritised, in particular in national budgets. In the next Multiannual 
Financial  Framework  (MFF)  covering  years  2028  –  2034 (141),  Member  States  would 
benefit  from  including  relevant  investments  and  reforms  in  their  future  National  and 
Regional Partnership Plans (NRPPs), which are at  the core of the proposal  for the next 
MFF. As underscored in annex VI of the NRPPs regulation (142), the ECG is one of the 
four  crucial  social  policy  areas  to  be  addressed  in  these  plans.  This  creates  a  vital 
opportunity  for  national  and  regional  governments  responsible  for  combatting  child 
poverty  and  ECG  implementation.  The  Commission  is  also  leveraging  existing  EU 
monitoring tools and the European Semester to track progress results and further pave the 

(139) Lundborg,  P.,  Rooth,  D.  O.,  &  Alex-Petersen,  J.  (2022).  Long-term  effects  of  childhood  nutrition: 

evidence from a school lunch reform. The Review of Economic Studies, 89(2), 876-908. 

(140) Report on the effectiveness of child benefits in the EU by Rand Europe, forthcoming. 

(141) Proposal for a Council regulation laying down the multiannual financial framework for the years 2028 

to 2034, COM/2025/571 final, https://eur-lex.europa.eu/legal-
content/EN/TXT/?uri=CELEX%3A52025PC0571&qid=1777139434354.  

(142) Annex VI of Proposal for a regulation of the European Parliament and of the Council establishing the 
European  Fund  for  economic,  social  and  territorial  cohesion,  agriculture  and  rural,  fisheries  and 
maritime, prosperity and security for the period 2028-2034 and amending Regulation (EU) 2023/955 
https://eur-lex.europa.eu/legal-
and 
content/EN/TXT/?uri=celex:52025PC0565. 

2024/2509: 

Regulation 

Euratom) 

(EU, 

91 

 
 
 
way  toward  a  Union  in  which  every  child  has  opportunities  necessary  for  a  secure  and 
prosperous future.  

The room for improvement is vast. As demonstrated by the EU Monitoring Framework 
for ECG, children in need continue to be significantly more likely to experience various 
aspects of disadvantage and deprivation (143). Investments aimed at addressing the above 
disadvantages are urgently needed. To start with, as shown in Section 3.1, there is a scope 
for improvement  in  identification of  children in  need.  This naturally goes in  hand with 
better  outreach  (discussed  in  Section  3.11),  which  could  notably  involve  individualised 
support  and  mentorship.  Such  mentorship  is  particularly  important  in  the  context  of 
transition  to  adulthood,  which  constitutes  a  key  element  of  breaking  the  cycle  of  child 
poverty. 

The initiative to strengthen the ECG also supports Member States to combat child 
poverty more efficiently, while at the same time reinforcing the guarantees on access to 
key services for those children who, despite efforts, remain exposed to poverty and social 
exclusion. At the macro level, the national targets for child poverty reduction would gain 
to be revised upwards to meet the EU 2030 target, especially in those Member States where 
they had been set at a lower level of ambition than the EU target. In the longer run the 
strengthening  of  the  ECG  and  the  EU  Anti-Poverty  Strategy  will  help  eradicate  severe 
child poverty by 2050. The Commission will put forward a pilot programme to develop a 
European Child Guarantee Card to facilitate access to services and coherent support for 
children  in  need,  maintaining  EU  rigorous  standards  for  children’s  safeguards  and 
protections, and building on the European Digital Identity Wallet (144). 

The overview of progress with the implementation of ECG clearly shows persistent 
gaps in access by children in need to services which are key for their development. 
Notably,  the  childcare  gap  –  a  period  between  end  of  a  well-paid  maternity  leave  and 
beginning of easily accessible, free or affordable childcare – forces families into difficult 
decisions. To address this gap, the Anti-Poverty Strategy announces the launch of the first 
stage social parneters consultation on the possible direction of EU action to support the 
activation  of  persons  excluded  from  the  labour  market  and  reinforce  equality  between 
women and men with  regard  to  labour  market  opportunities,  including  through access 
to childcare.  Furthermore,  the  European  Education  Area  strategic  framework,  which 
states  that  by  2030  the  share  of  learners  from  disadvantaged  backgrounds  with  a  good 
achievement in at least one domain (reading, mathematics or science) should be at least 
25% and the Education Package (with its upcoming Basic Skills Support Scheme as well 
as  other  planned  actions  such  as  the  Teachers  and  Trainers  Agenda  and  the  European 
School Alliance) will help reduce the education outcome gap. In addition, Member States 
and  local  authorities  would  gain  from  establishing  or  expanding  quality  school  meal 
programmes.  

(143)  This includes nutritionally unbalanced meals (they are 12.5 times more likely than their better-off peers 
to lack a daily meal containing protein and 11.4 times more likely to not consume fruits and vegetables 
daily), skipping on school trips because of financial reasons (ten times more likely), not having access 
to leisure activities (almost eight times more likely), being low achievers at school (over six times more 
likely), being overweight or obese (29.1% of children in need vs 18.3% of children not in need), and 
feeling low (29.0% vs 25.0%). At the same time, children in need are less likely to declare being in very 
good health (57.4% vs 67.0% of children not in need) or to participate in ECEC: 24.4% vs 42.4% as 
regards participation by children aged under 3 years of age and 82.0% vs 91.0% in the older cohort (3 
years to mandatory school age). 

(144)  https://digital-strategy.ec.europa.eu/en/policies/eudi-regulation  

92 

 
 
 
Bridging the support offered under ECG and Youth Guarantee would substantially 
increase effectiveness on the ground, offering continuous support from childhood into 
early adulthood. Such bridge would involve setting out practical ways for Member States 
to  use  EU  funding,  mentoring,  outreach  and  other  support  measures,  and  to  develop 
integrated pathways for children and young people in need. These pathways should support 
their  transition  into  education,  training  or  employment,  while  reducing  the  risk  of 
disengagement and falling into a NEET situation. The Child Guarantee Coordinators and 
Youth Guarantee coordinators are well placed to jointly define practical steps to achieve 
appropriate integration.   

Furthermore,  as  announced  in  the  EU  Action  Plan  against  Cyberbullying,  more 
should  be  done  to  protect  and  empower  the  vulnerable  children  online  (145).  The 
related  policy  responses  include  the  forthcoming  EU  Action  Plan  on  the  protection  of 
children against crimes and, under the Education Package, the Digital Education Roadmap. 
In addition, Member States would benefit from securing adequate psychological support 
in schools and invest heavily in mental health care for children, which is in acutely short 
supply everywhere in the EU. The physical health of children in need should also be given 
more  consideration.  The  Commission  has  taken  action  to  address  this  challenge  by 
commissioning preparation of a dedicated Policy Toolkit which will help Member States 
enhance access of children in need to regular check-ups and improve their health literacy. 
In addition, in its proposal to revise the Council Recommendation on Health-Enhancing 
Physical  Activity  planned  for  2027,  the  Commission  will  aim  to  boost  evidence-based 
policymaking, including in relation to access to physical activity of vulnerable groups.  

In  parallel  with  the  Communication  on  breaking  the  cycle  of  child  poverty  -
strengthening the European Child Guarantee, Commission is issuing a proposal for 
a  Council  recommendation  on  fighting  housing  exclusion.  It  should  be  noted  that 
initiatives such as the European Affordable Housing Plan provide further help and ease the 
financial burden faced by parents in accessing services and goods of key importance for 
child-rearing,  such  as  housing.  The  ambition  to  end  child  homelessness  is  a  common 
element  of those two policy initiatives. To start  with,  a systematic, coherent  and cross-
country comparable data collection is necessary, allowing to monitor the actual number of 
children experiencing different degrees of homelessness. The Council Recommendation 
on  fighting  housing  exclusion  will  pave  the  way  toward  ending  child  homelessness, 
through both a preventive and supportive approach.  

(145)  https://digital-strategy.ec.europa.eu/en/policies/cyberbullying.  

93 

 
 
 
ANNEX I: THE EU AND NATIONAL TARGETS FOR CHILD POVERTY REDUCTION 

Source: Eurostat (EU-SILC). Notes: * Countries that have expressed their national target in a format other than absolute population 
reductions. EL and MT express their national poverty and social exclusion reduction targets for children as a reduction of the AROPE 
rate for children. Germany has expressed its national goal for the EU 2030 poverty and social exclusion reduction target for children in 
the following way: The number of children at risk of poverty or social exclusion shall be reduced by 300 thousand persons, by decreasing 
the number of children living in (quasi-)jobless households (i.e. households with very low work intensity) by 300 thousand. The base 
reference year for the target is 2020 in DE. No targets set for reduction of child poverty and social exclusion in DK, IT, LV, LT and 
NL., while for HU its headline target also considers the situation of children by focusing on families with children as a target group. + 
Series for DE adjusted for major break in AROPE in 2020 (break adjusted backwards to 2019) and in for FR adjusted in 2022, 2023 
and 2024 due to a major break in 2022, due to the new inclusion of overseas departments and regions. Breaks in series in CY in 2024, 
IE in 2020, and major breaks in HR in 2023 and 2024. For LU, several breaks in EU-SILC data series (in 2020, 2021 and 2022) so there 
is a need to be cautious in the interpretation of evolutions. Cells shaded in green indicate that targets have been met.  

94 

National target (reduction of AROPE in 1000s vs 2019 figures)AROPE population 2019 (1000s)AROPE population 2020 (1000s)AROPE population 2021 (1000s)AROPE population 2022 (1000s)AROPE population 2023 (1000s)AROPE population 2024 (1000s)Mini charts of trends to latest available yearOverall change 2019-2024 (1000s)Gap to tgtEU-5,00019,12619,45519,68420,04619,99519,5243985,398BE-93532516492459461478-5439BG-197434432400411377394-40157CZ-5026026428027031532565115DKn.a.15815215815617118224n.aDE*+-3002,8743,1443,3573,5493,5263,377233533EE-13504445434944-67IE-45303269281274293253-50-5EL*(-6.6 p.p. AROPE)31.230.832.028.128.127.9-3.33.3 p.p.ES-7132,5712,6082,7502,6042,7682,756185898FR+-3003,1943,1382,9343,4983,3203,421227527HR-40134126127119113125-931ITn.a.2,6582,7972,8512,6602,4712,421-237n.aCY-3373333332926-11-8LVn.a.677275737565-2n.a.LTn.a.128115108110111117-11n.a.LU-128303631343356HUn.a.469463444360415386-83n.a.MT*(-6  p.p. AROPE)23.722.323.223.125.225.92.28.2 p.p.NLn.a.519526493459526518-1n.a.AT-10231234536835337634432134PL-3001,0891,0961,1401,1381,1361,070-19281PT-161380378388339379351-29132RO-5001,4261,4831,5081,4961,3601,255-171329SI-345474341434725SK-212071832022522592373051FI-331471521381551441783164SE-5510453437441481458-52-47 
 
ANNEX II: THE EU MONITORING FRAMEWORK 

95 

 
 
 
 
 
ANNEX  III:  COUNTRY  PROFILES  ON  THE  STATE  OF  PLAY  WITH  IMPLEMENTATION  OF 

THE EUROPEAN CHILD GUARANTEE RECOMMENDATION 

To  assess  the  degree  of  compliance  with  specific  points  of  ECG  Recommendation, 
Commission has prepared a checklist, in which the key elements of guidance included in 
the Recommendation were transposed into 33 questions. The checklist was consulted with 
Child Guarantee Coordinators. Its purpose is to support Member States with identifying 
concrete  gaps  in  implementation  of  the  ECG  Recommendation.  While  quantitative 
indicators  –  notably  those  based  on  the  EU  Monitoring  Framework  –  were  taken  into 
account when formulating responses and the resulting assessment, each checklist question 
has  been  answered  in  descriptive  qualitative  manner,  drawing  from  the  national  action 
plans  for  implementation  of  the  ECG,  as  well  as  the  progress  reports  prepared  by  the 
Member  States  in  2024  and  2026  (146).  Other  sources  of  information,  such  as  ESPAN 
reports  and  analyses  by  civil  society  have  also  been  considered.  The  cross-country 
coherence  of  assessments  was  ensured  through  uniform  and  transparent  definition  of 
compliance criteria (listed below), and through consulting the assessments with all national 
Child Guarantee Coordinators. The assessment checklist is presented below, followed by 
the  country  profiles,  which  describe  the  degree  to  which  each  Member  States  has 
implemented  the  ECG  Recommendation.  The  country  profiles  are  presented  in  the  EU 
protocolar order, which is based on alphabetic order of Member States’ names in their first 
official languages. 

Identification of children in need 

Is the target group (children in need) and groups of children with specific disadvantages 
clearly identified in the action plan, and are respective numbers given in the action plan 
and updated in the progress report? (§ 5) 

Full implementation: clearly stated number of children in need, the statistical notion of 
the risk of poverty or social exclusion operationalised in a way that does not limit the 
size of the target group, priority groups clearly listed and their size given, along with 
particular disadvantages they experience – all updated in the progress report. 

Free and effective access to early childhood education and care (ECEC), age 0-3 

Have the financial barriers to participation in ECEC (e.g. tuition fees, meals, costs of 
transport and educational materials) been identified and addressed? (§ 7a) 

Full  implementation:  at  least  clear  evidence  of  effectively  free  access  (incl.  meals, 
educational materials etc., might be through targeted in-cash allowances) for all children 
at risk of poverty or social exclusion. 

Have  the  non-financial  barriers  to  participation  in  ECEC  (incl.  staff  shortages)  been 
identified and addressed? (§ 7a) 

Full implementation: at least clear evidence of no unmet demand, no staff shortages and 
no geographical access barriers. 

(146) Progress reports submitted until 17 April 2026 were taken into consideration.   

96 

 
 
 
 
 
Are  there  sufficient  measures  in  place  to  support  inclusive  education  and  avoid 
segregated classes? (§ 7c, § 7d, § 7e) 

Full implementation: at least clear evidence of efforts to desegregate, and of large-scale 
measures to adapt facilities and educational materials, and to ensure that there is enough 
of qualified staff to meet the needs of children with special educational needs. 

Free and effective access to ECEC, age 3-school 

Have the financial barriers to participation in ECEC (e.g. tuition fees, meals, costs of 
transport and educational materials) been identified and addressed? (§ 7a) 

Full  implementation:  at  least  clear  evidence  of  effectively  free  access  (incl.  meals, 
educational materials etc., might be through targeted in-cash allowances) for all children 
at risk of poverty or social exclusion. 

Have  the  non-financial  barriers  to  participation  in  ECEC  (incl.  staff  shortages)  been 
identified and addressed? (§ 7a) 

Full implementation: at least clear evidence of no unmet demand, no staff shortages and 
no geographical access barriers. 

Are  there  sufficient  measures  in  place  to  support  inclusive  education  and  avoid 
segregated classes? (§ 7c, § 7d, § 7e) 

Full implementation: at least clear evidence of efforts to desegregate, and of large-scale 
measures to adapt facilities and educational materials, and to ensure that there is enough 
of qualified staff to meet the needs of children with special educational needs. 

Free and effective access to education 

Are there sufficient measures to prevent and reduce early school leaving? Is personalised 
guidance provided? (§ 7b) 

Full implementation: at least among the top 5 with lowest rate in the EU, some decrease 
recorded in the last years, and clear evidence of large-scale measures taken. 

Are  there  sufficient  measures  to  support  inclusive  education  and  avoid  segregated 
classes? (§ 7c, § 7d, § 7e) 

Full  implementation:  at  least  no  underachievement  gap  between  disadvantaged  and 
advantaged  pupils,  clear  evidence  of  large-scale  measures  to  adapt  facilities  and 
educational materials and to ensure there are enough qualified staffs to meet the needs 
of children with special educational needs. 

Are school materials (incl. digital equipment) provided free of cost for children in need? 
(§ 7g, § 7h) 

Full  implementation:  at  least  clear  evidence  of  free  provision  of  all  materials  and 
equipment necessary to participate in education to all children at risk of poverty or social 
exclusion. 

97 

 
 
Is free transport to schools provided for children in need? (§ 7i) 

Full  implementation:  at  least  clear  evidence  of  free  transport  provision  or  of  in-cash 
benefits fully covering transportation costs for all children at risk of poverty or social 
exclusion. 

Free healthy meal each school day 

Is at least one free healthy meal provided to all children in need in ECEC each school 
day? (§ 7f) 

Full implementation: action plan or progress report confirm that all children AROPE 
enrolled in ECEC receive a free healthy meal each school day. 

Is at least one free healthy meal provided to all children in need in primary schools each 
school day? (§ 7f) 

Full implementation: action plan or progress report confirm that all children AROPE in 
primary schools receive a free healthy meal each school day. 

Is at least one free healthy meal provided to all children in need in secondary schools 
each school day? (§ 7f) 

Full implementation: action plan or progress report confirm that all children AROPE in 
secondary schools receive a free healthy meal each school day. 

Free and effective access to school-based activities 

Is  equal  and  inclusive  access  ensured  for  children  in  need  to  school-based  activities, 
including participation in school trips and sport, leisure and culture? (§ 7j) 

Full  implementation:  among  the  top  5  performers  based  on  the  EU  monitoring 
framework indicators and clear evidence of large-scale measures taken to secure access 
to school-based activities for all children at risk of poverty or social exclusion. 

Is there a framework for cooperation of educational establishments, local communities, 
social,  health  and  child  protection  services,  families  and  social  economy  actors  to 
support inclusive education, to provide after school care and opportunities to participate 
in sport, leisure and culture? (§ 7k) 

Full implementation: at  least  clear evidence of cooperation framework between local 
services throughout the given Member State (not just in some localities). 

98 

 
 
 
 
Free and effective access to healthcare 

Are  there  sufficient  measures  in  place  to  facilitate  early  detection  and  treatment  of 
diseases and developmental problems? 

Full implementation: free screening programmes on general health, hearing, and vision, 
as well as dental check-ups available until the age of 18 years (see Table 5 in the EU 
Monitoring  framework).  Evidence  that  a  significant  number  of  children  in  need  is 
covered by such programmes should be presented in the action plan or progress report. 

Are there effective measures in place to ensure that all children in need receive the set 
of childhood vaccines recommended by the WHO?  

Full  implementation:  at  least  94%  of  one-year-olds  vaccinated  against  Diphtheria-
Tetanus-Pertussis,  Haemophilus  influenzae  B,  Hepatitis  B,  Measles,  Pneumococcal 
disease,  Polio,  and  Rubella,  and  at  least  75%  of  one-year-olds  vaccinated  against 
Rotavirus. (Based on WHO Immunization Data portal). 

Are there sufficient measures in place to facilitate early detection and treatment of mental 
health problems? 

Full  implementation:  measures  to  facilitate  early  detection  and  treatment  of  mental 
diseases  and developmental problems clearly described in the action plan or progress 
report, along with information on the number of children in need receiving assistance. 
Good  performance  on  incidence  of  feeling  low  among  children  from  low-affluence 
families (see Figure 15 in the EU Monitoring framework). 

Do children in need receive prescription medicines for free? 

Full  implementation:  all  children  at  risk  of  poverty  or  social  exclusion  receive  all 
prescription drugs for free (see Table 4 in the EU Monitoring framework). 

Are all children with disabilities provided with targeted rehabilitation and habilitation 
services? 

Full implementation: the number of child beneficiaries of rehabilitation and habilitation 
services should be not less than 75% of the number of children with disabilities. 

Are  there  adequate  health  promotion  and  disease  prevention  programmes  targeting 
children in need in place? 

Full  implementation:  health  promotion  and  disease  prevention  programmes  targeting 
children  in  need  included  in  the  action  plan,  with  a  follow-up  in  the  progress  report, 
showing that they have been successfully implemented. Good performance on incidence 
of  smoking  among  children  from  low-affluence  families  (see  Figure  16  in  the  EU 
Monitoring framework). 

99 

 
 
 
 
Healthy nutrition 

Is the access to healthy nutrition outside of school supported for children in need? (§ 9a) 

Full implementation: there is clear evidence – presented in the action plan or progress 
report  –  of  in-kind  or  financial  support  offered  to  families  with  children  in  need  and 
explicitly designed to support access to healthy nutrition outside of school days. 

Is advertisement and availability of unhealthy food limited? (§ 9c) 

Full implementation: advertisement of foods high in fat, salt and sugar is limited and 
their availability is restricted in educational establishments of all levels. 

Combatting homelessness  

Do  homeless  children  and  their  families  receive  adequate  accommodation,  prompt 
transfer from temporary accommodation to permanent housing, and relevant social and 
advisory services? (§10a) 

Full  implementation:  the  number  of  homeless  children  is  known  and  reported  in  the 
action plan or progress report, along with information on the method of calculation. The 
action  plan  or  progress  report  clearly  specify  prompt  deadlines  for  provision  of 
temporary  accommodation  for  homeless  families  with  children  and  for  their  transfer 
from temporary accommodation to permanent housing. Social and advisory services are 
offered and clearly described in the action plan or in the progress report. 

Are there measures in place to prevent the risk of homelessness among families with 
children? (§10a) 

Full  implementation:  the  action  plan  or  progress  report  describe  homelessness 
prevention measures targeted at families with children and prove their effectiveness. 

Effective access to adequate housing 

Are there measures to address energy poverty of families with children? (§10b) 

Full  implementation:  the  action  plan  or  progress  report  describe  measures  to  address 
energy poverty and demonstrate their effectiveness. 

Is there enough social housing and do families with children in need have priority in 
access to it? (§10c) 

Full  implementation:  families  with  children  in  need  have  a  priority  access  to 
social/public housing, which is in enough supply to accommodate at least half of the 
national population of people at risk of poverty or social exclusion. 

100 

 
 
 
 
Good alternative care standards 

Are there measures to ensure that the best interests of the child as well as their overall 
situation  and  individual  needs  are  considered  when  placing  them  in  alternative  care? 
(§10d) 

Full  implementation:  The  existence  of  a  procedure  on  determination  of  child’s  best 
interests  and  its  consistent  application  is  explicitly  mentioned  in  the  action  plan  or 
progress report. Such a procedure should ensure adequate child participation and allow 
the views of the child to be given due weight in accordance with age and maturity. 

Are there measures to ensure the transition of children from institutional care to quality 
family-based care? §10(d) 

Full implementation: the share of children in residential care within the total population 
of children in alternative care should be below 10% (see Table 2 in the EU Monitoring 
framework). 

Are  there  sufficient  measures  to  support  independent  living  and  social  integration  of 
children leaving alternative care? (§10d) 

Full implementation: action plan or progress report contain evidence of a robust system 
of support for transition to adulthood. Such support should be available to youth leaving 
alternative care until they are integrated in the labour market. 

Outreach and awareness raising 

Have adequate information and outreach measures been implemented, ensuring that all 
children  in  need  can  benefit  from  the  measures  rolled  out  under  the  European  Child 
Guarantee? (§ 11d) 

Full  implementation:  widely  implemented,  targeted/personalised,  and  proactive 
approach pursued at local level (by authorities or publicly supported NGOs). 

Stakeholders’ involvement 

Have  all 
implementation, monitoring and evaluation of the action plan? (§ 11e) 

relevant  stakeholders  been 

throughout 

involved 

the  preparation, 

Full  implementation:  all  four  stakeholder  types  (ministries  and  state  agencies; 
local/regional  governments;  NGOs;  children)  have  been  consulted  and  such 
consultations  have  been  repeated  between  publication  of  the  action  plan  and  of  the 
progress report. 

Colour coding of implementation levels: 

Fully 
implemented 

Widely 
implemented 

Partially 
implemented 

Implemented 
to a limited 
extent 

Not 
implemented 

101 

 
 
 
 
BELGIUM 

Identification of children in need  

National  action  plan  provides  basic  data  on  the  children  AROPE  at  different  administrative 
levels. There is no data on groups who face specific disadvantages. Limited information on the 
challenges for children AROPE is provided in the different sections of the 2024 progress report. 
2026 report provides a general rate of children AROPE. It highlights initiating of work within 
the Inter-ministerial Conference to map and coordinate the various sources of administrative 
data across different levels of government. This represents a constructive step towards a more 
systematic  monitoring  of  target  groups.  At  the  same  time,  according  to  the  report,  the 
availability  of  comparable  data  across  federated  entities  is  still  limited,  meaning  that  the 
challenge  remains  only  partially  addressed.  The  report  also  points  to  works  on  several 
improvements in the ECG governance framework in Belgium (incl. review of the ECG action 
plan).  

Free and effective access to early childhood education and care (ECEC), age 0-3 

Addressing the financial barriers 

The 2026 report mentions that families benefiting from the increased intervention automatically 
benefit from free childcare, however this measure will not be extended. At the same time ECEC 
pricing was reformed in 2025 to better reflect income. Elsewhere, fees are income-based with 
reduced rates or grants There are free meals in ECEC, but for a limited group and not in all 
regions.  Children  under  6  travel  free.  Share  of  children  (<3)  AROPE  in  formal  childcare 
increased significantly from 2022 to 2023 (from 20,7% to 42,5%). 

Addressing the non-financial barriers 

According  to  the  progress  report  lack  of  available  places  and  staff  shortages  are  main 
challenges. Measures in the plan address mainly the financial barriers and increasing availability 
of places/structures. The progress report highlights the extension of reception places in certain 
entities, measures to increase the attractiveness of ECEC profession and measures to improve 
the quality. These are positive trends, however address only partially the challenges.  

Measures to support inclusive education and avoid segregated classes  

Projects described in the action plan on access of children with disabilities mainly target primary 
school.  The  report  notes  efforts  in  Brussels,  focusing  on  social  integration  and  inclusion  of 
children with disabilities in ECEC. Brief information is given for  the French Community on 
adapting education and avoiding segregation. In Wallonia, there are accompaniment services 
and a mobile support scheme aimed at promoting inclusion.  In 2025, the Flemish government 
launched a new policy framework for inclusive education until 2040, aiming to better integrate 
students  with  special  learning  needs  into  mainstream  education.  Limited  information  in  the 
second progress report.  

102 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
Free and effective access to ECEC, age 3-school 

Addressing the financial barriers  

Pre-schools are free and attendance is nearly universal. Schools may charge capped fees for 
non-essential  activities.  Flanders  offers  a  pre-school  allowance  and  annual  school  bonus. 
Surveys show parents paid € 45 on average for materials and € 160 in total school costs per 
child in 2021. Transport is free for children under 6, with efforts to extend or reduce costs in all 
regions  (Action  Plan,  pp.  41–42).  Despite  broad  compliance,  some  costs  still  burden 
disadvantaged families (e.g. meals). 

Addressing the non-financial barriers  

According to ESPAN report staff shortages, insufficient funding are main challenges. Measures 
in  the  plan  address  mainly  the  financial  barriers.  Second  progress  reports  mentions 
‘Kindergarten  is  essential’  training  project  for  kindergarten  teachers  focusing  on  social 
inclusion.  

Measures to support inclusive education and avoid segregated classes  

Same analysis as for the 0-3 age group. 

Free and effective access to education 

Measures to prevent and reduce early school leaving, incl. personalised guidance 

Several  schemes  aim  to  address  early  school  leaving,  e.g.:  School  Suspension  Device,  and 
Youth  Guarantee.  The  French  Community's  recovery  plan  includes  a  decree  to  fight 
absenteeism and early school leaving. A School Climate Observatory was established in 2023. 
Socio-economic status and migrant background are still strong predictors of performance. The 
incidence of early leaving from education and training increased from 6.2% in 2023 to 7.0% in 
2024. 

Measures to support inclusive education and avoid segregated classes  

Action  plan  and  progress  reports  describe  limited  initiatives  in  different  regions  to  support 
children with learning difficulties. In the French Community, multidisciplinary teams were set 
up to help teachers make adjustments to include in schooling pupils with special needs. Flanders 
is taking actions for a more inclusive school system by 2040. In Wallonia, support services for 
persons with disabilities carry out school support actions that complement those organised by 
the Wallonia-Brussels Federation. A draft cooperation agreement on such interventions is being 
prepared. Insufficient information on adaptation of educational materials, staff shortages. 2026 
report  mentions  several  new  initiatives  to  strengthen  inclusive  education,  including  the 
extension  of  support  schemes  for  pupils  with  special  needs,  the  development  of  support 
structures for schools and the strengthening of schemes for newcomers. These measures reflect 
a  positive  trend,  however  difficulties  related  to  lack  of  staff,  pedagogical  support  and 
coordination between services remain. 

Provision of free school materials (incl. digital equipment)  

Primary  education  is  compulsory  and  free  in  all  communities.  The  Flemish  and  the  French 
Communities apply a "maximum bill" (ca. € 50) for school activities and offer further support. 
In Flanders, low-income families receive school allowances and in French Community study 
grants  (for  secondary  schools).  The  Wallonia-Brussels  Federation  is  rolling  out  a  gradual 
extension of free school supplies to all basic education. Still there is a reduction of the budgetary 
means allocated to these measures by the next evaluation period. In Wallonia, children with 
disabilities  may  benefit  from  financial  support  for  the  acquisition  of  specialised  equipment 
intended  to  compensate  for  their  difficulties  across  their  different  living  environments, 
including at school. Access to this financial support is subject to specific eligibility conditions. 

103 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Free transport 

Transport is free for children under 6. In Wallonia, transport policies include free access to the 
TEC network for children under 6, free subscriptions for those aged 6–11 (with a MOBIB card), 
reduced fares for 12–17 year olds, and a low-cost annual pass for young adults aged 18–24; 
additionally, 3.4% of pupils benefit from school transport, with ongoing reforms led jointly by 
the Walloon Region and the Wallonia-Brussels Federation to improve services, particularly for 
pupils with special needs. In Flanders, while there is no general obligation regarding certain 
school-based  support  measures,  the  government  has  introduced  a  co-financing  scheme  with 
local authorities, with increasing budgets through 2029, although coverage depends on local 
implementation. In the German-speaking Community, free school transport for children under 
12 remains a key measure supporting access to education €  

Free healthy meal each school day 

ECEC  

French Community: free ECEC meals exist but not universally. Since 2023-2024 school year, 
free meals cover all children from 2.5 to 6 years old in schools with a low socio-economic index. 
Since 1 Jan 2023, families with BIM status get free income-based childcare, including food. 
Single-parent families pay 70% of the cost. Other mechanisms may give rise to reductions (up 
to 100%) of the parental financial contribution, such as the social investigation for families in 
social or economic difficulty. Flemish Community Commission has no current action. Flanders 
plans new measures. 

Primary schools  

Access to free healthy school meals for children in need remains limited and uneven across 
regions and municipalities. In the French-speaking community, recent developments point to a 
reduction in budgetary allocations, leading to a decrease in both coverage and sustainability of 
existing  schemes.  As  per  recent  progress  report  the  evolution  of  the  school  meal  financing 
mechanism, with the abolition of the dedicated scheme and the reduction of budgetary means 
in the Wallonia-Brussels Federation is generally perceived by several actors as a weakening of 
the scheme, which may limit effective access to free meals for the most vulnerable pupils. On 
the other hand, the Flemish Community launched co-financing scheme to support local school 
feeding initiatives, with a gradual increase in budgets until 2029, though coverage of the scheme 
being largely dependent on local initiatives. 

Secondary schools  

Except for local initiatives or pilot projects, there are no  permanent school meal schemes for 
secondary schools. 

Free and effective access to school-based activities 

Equal and inclusive access to school-based activities, including participation in school trips and 
sport, leisure and culture 

There  is  no  mention of  the  costs  of  school-based  activities  in  the  action  plan.  As  per  recent 
progress  report  several  initiatives  point  to  a  gradual  shift  toward  improving  access  to 
educational and leisure activities for children, particularly through measures aimed at vulnerable 
groups  and  a  more  structured  out-of-school  sector.  However,  there  is  an  absence  of  a 
comprehensive national overview of actual costs and scheme coverage, limiting the assessment. 

104 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Framework for cooperation to provide after school care and opportunities to participate in sport, 
leisure and culture 

On-going  projects  in  some  of  the  regions  are  briefly  described.  In  Wallonia,  eight  inclusion 
support schemes are funded known as “childhood inclusion support services”, which intervene 
with operators in the out-of-school care sector (after-school activities). These services cooperate 
with  schools  as  well  as  with  ONE,  local  authorities,  youth  organisations  and  other  relevant 
actors. Support services may also be mobilised to facilitate access for children with disabilities 
to  leisure,  sports  and  cultural  activities  that  are  tailored  to  their  needs.  Current  assessment 
reflects, in part, the complexity of governance arrangements in BE. Strengthening coordination 
between educational, social, health and child protection actors across all levels of government 
is key. 

Free and effective access to healthcare 

Measures to facilitate early detection and treatment of diseases and developmental problems? 

Free screenings exist in nurseries and schools; free GP/specialist/dental care remains limited, 
and  disparities  persist.  Flanders  provides  systematic  screening  (health,  development,  vision, 
hearing  –  98.3%  reach).  Wallonia  develops  prevention  via youth  mental  health  projects  and 
family planning centres. The German-speaking Community improves coordination through the 
NmG network. Children at risk of poverty or social exclusion are more likely to have unmet 
health needs.  As per recent progress report a federal study is ongoing on the impact of children’s 
health  costs  on  the  budget  of  vulnerable  families,  which  will  result  in  recommendations  for 
future  action.  Several  positive  developments  are  rolled  out,  including  development  of 
preventive consultations for young children, screening and vaccination programmes as well as 
the development of initiatives to improve the coordination of services and access to care for 
vulnerable families. Challenges persist, e.g. waiting times and inequalities in access for certain 
groups of vulnerable children. 

Childhood vaccines recommended by the WHO 

High vaccination rates. 

Measures to facilitate early detection and treatment of mental health problems 

There are efforts and reforms to improve access to mental health. Flanders develops OverKop 
for youth (12–25). Wallonia strengthens youth mental health support and free psychological 
consultations.  The  German-speaking  Community  created  the  NmG  network  and  First  Line 
Psychologists project offering free sessions. Issues persist, e.g. long waiting times. High share 
of children feeling low more than once a week (See EU monitoring framework). 

Free prescription medicines 

 Medicines  are  partly  or  fully  reimbursed.  Vulnerable  families  benefit  from  increased 
interventions but access remains limited for some children.  

Provision of targeted rehabilitation and habilitation services for children with disabilities  

The  reports  give  limited  detail.  Communities  offer  rehabilitation,  home  and  school  support, 
family help, and technical aids. In Flanders, disability centres provide day/residential care and 
guidance,  or  a  Personal  Assistance  Budget  for  minors,  though  not  all  children  qualify.  The 
German-speaking Community offers Frühhilfe, BTZ therapy to 14, and rehabilitation abroad 
for  complex  cases.  Measures  aim  to  improve  inclusion,  but  long  waits,  regional  gaps,  and 
limited services persist. 

105 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Health promotion and disease prevention programmes targeting children in need  

Various health promotion initiatives are described in the  action plan without information on 
number of beneficiaries or achieved results. According to OECD, Belgium allocated just 2.3% 
of its health expenditure to prevention, compared to an EU27 average of 4.3%. The 2023–2027 
Walloon Health Promotion and Prevention Programme states that health promotion and disease 
prevention policies must primarily benefit the most vulnerable groups, including children living 
in socio-economically precarious conditions. 

Healthy nutrition 

Access to healthy nutrition outside of school  

There are institutions such as food banks that aim to improve access to adequate nutrition and 
several projects, e.g. Progecole in Wallonia allowing for regular distribution of fruit, vegetables 
and dairy products in participating schools, especially those with more vulnerable pupils. The 
Flemish government has introduced a new  co-financing mechanism with local authorities to 
support local initiatives to improve access to healthy food at school. Since 2022 €  40.98 mln 
(EU contribution €  37.26 mln) supported food access through the Federal Food Aid Programme 
under the ESF+. As per recent report, at federal level a budget cut shows a worrying decline in 
funding through ESF+ funds, eliminating products intended for children. 

Limited advertisement and availability of unhealthy food  

Advertisement and availability are limited in Flanders and the German-Speaking Community. 
In Wallonia, specifications for improving school meals are under review. 

Combatting homelessness  

Provision  of  adequate  accommodation,  prompt  transfer  from  temporary  accommodation  to 
permanent housing, and relevant social and advisory services 

Measures include emergency and transitional housing, housing-led projects (e.g. with focus on 
youth in Flanders; 13 schemes in Wallonia), psychosocial support, rent subsidies, prevention 
strategies, winter shelters. Some projects focus on unaccompanied minors. In Wallonia, in 2024, 
19,387 people are experiencing homelessness or housing exclusion, including 14,183 adults and 
5,204 children.  The action plan and progress report do not specify deadlines for provision of 
temporary  accommodation  nor  number  of  homeless  children.  Gaps  persist  in  capacity, 
monitoring, delays in moving to permanent housing, etc. 

Measures to prevent the risk of homelessness among families with children 

All three regions offer housing allowances yet with low coverage. Flanders has an action plan 
against  homelessness,  with  mechanisms  for  early  detection  of  situations  of  vulnerability, 
including  in  youth  services  and  a  “Housing  First  for  Youth”  programme.  Wallonia’s 
homelessness  strategy  provides  rent  subsidies  and  interest-free  loans.  The  poverty  strategy 
seeks i.a. to expand the housing supply for the 24% most socio-economically disadvantaged 
people in Wallonia. Brussels  follows housing-led approach, boosts public housing, renovates 
housing  for  long-term  homeless,  has  rent  control  and  funds  winter  shelters.  The  federal 
government is working with the Communities and Regions on a new cooperation agreement on 
homelessness and housing exclusion. 

106 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Effective access to adequate housing 

Measures to address energy poverty of families with children 

Federal energy funds support low-income individuals with debt mediation and payment plans. 
Social tariff access, lump sum allowances, and vouchers were expanded (to be clarified if the 
support continues). Flanders' Energy Poverty Plan targets disconnection prevention and home 
renovation, eligibility conditions take into account the number of dependent children. Wallonia 
focuses on subsidy reform and improved support for energy-poor households. 

Social housing for families with children  

Social housing covers 6% of the housing stock, with long waiting lists and allocation system 
failures. In Flanders, 20% are reserved for vulnerable groups but there is no general priority for 
families  and  long  waiting  times  persist  (as  per  progress  report).  Flemish  Government  has 
adopted a number of measures: a new binding target for social housing construction for local 
authorities or specific monitoring of waiting times for families with children, to ensure that the 
supply of housing better matches the needs of households on the waiting lists. Brussels applies 
quotas  for  homeless  people,  funds  Social  Estate  Agents  (EUR 1.5m  from  2024),  and  uses 
priority  points  for  families.  Wallonia  and  the  German-speaking  Community  use  priority 
systems and targeted support. 

Good alternative care standards 

Measures  to  ensure  that  the  best  interests  of  the  child  as  well  as  their  overall  situation  and 
individual needs are considered when placing them in alternative care 

No information in action plan nor first progress report. The second progress report mentions 
2018 legal framework strengthening the rights of young people, by ensuring individualisation 
and proportionality of decisions, participation of the child in proceedings concerning him or her 
and the maintenance of family ties where this is compatible with his or her interests. Alternative 
care is considered as a last resort, the priority objective being to promote the development of 
the  child  in  his  or  her  living  environment.  2024  amendments  further  incorporate  the  best 
interests  of  the  child  and  his or  her  right  to  participation  in  interventions  carried  out  by  the 
Houses of Justice As the available information in the submitted documents is still limited, the 
compliance is considered partial. 

Measures to ensure the transition of children from institutional care to quality family-based care 

Limited  information  in  the  action  plan  or  reports.  Flanders:  a  personal  assistance  budget 
supports minors with disabilities at home or school. In Wallonia, children with disabilities, and 
their  parents/siblings  may  be  supported  by  accompaniment  services  as  well  as  by  mobile 
intervention  teams.  Wallonia-Brussels:  efforts  to  maintain  family  ties  during  placements, 
improve early childhood care standards, enhance coordination between care services. German-
speaking  Community:  Social  services  support  children's  social  integration  and  transition  to 
community living. A prevention sector reform is being prepared for 2026, aiming to reduce the 
number  of  young  people  in  difficulty  through  a  cross-cutting  approach  involving  health, 
education, social assistance and children. There is a lack of foster families. Share of children in 
residential care is at 42.1%. 

Measures to support independent living and  social integration of children leaving alternative 
care 

indicate 

Recent  findings 
institutional  background  as  a  key  factor  for  becoming 
homeless, in particular for young people leaving youth institutions. The action plan nor report 
provide sufficient information on the issue.  In  Wallonia,  the  coordinated  strategy  to  end 
homelessness  for  the  period  2025–2029  provides  a  structured  framework  for  action,  built 
around three pillars: prevention, resolution, and management. One of the measures provides for 
enhanced support for young people leaving care institutions.  

107 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
Outreach and awareness raising 

Action plan describes outreach and awareness-raising relevant for increasing social cohesion, 
e.g. the federal government and federated entities are developing  programmes to access to key 
services  by  children  in  need  and  their  families.  Outreach  work  is  a  central  principle  in  the 
various actions carried out in the Flanders, Wallonia, Wallonia-Brussels. Biennial report does 
not mention measures in the area. At federal level, limited staffing resources have so far slowed 
down the reinforcement of coordination, outreach and monitoring activities under the European 
Child Guarantee. However, the European Child Guarantee has been identified as a ministerial 
priority  by  the  Minister  responsible  for  the  fight  against  poverty.  Efforts  are  underway  to 
strengthen coordination capacities, improve information flows. 

Stakeholders’ involvement 

A number of meetings took place with the civil sector as well as thematic seminars with local 
points were organised. It is not clear if and which stakeholders or if children were consulted on  
the different documents. As per recent report, there is no structural mechanism for consulting 
civil society in the governance of the European Child Guarantee at national level. 

108 

 
 
 
 
 
 
 
 
 
BULGARIA 

Identification of children in need  

Various  kinds  of  disadvantage  (homelessness,  disability  or  mental  health  issues,  refugee  or 
migrant background, belonging to ethnic minority, being in alternative care, living in a family 
on low income or in precarious situation) are listed as basis for being included in the target 
group, with numbers given for some but not all of those categories. 

Free and effective access to early childhood education and care (ECEC), age 0-3 

Addressing the financial barriers 

Since April 2022, all public ECEC in Bulgaria is free for all age groups, including costs for 
meals. Outside of the public system, there are several mechanisms providing financial support 
to  families  who  have  not  been  granted  a  place  in  the  public  facilities  (e.g.  due  to  capacity 
shortage). As of 2024, a new measure  was put in place to make public transport free for all 
children aged up to 14 years. 

Addressing the non-financial barriers 

Insufficient capacity, sometimes unsatisfactory quality of ECEC, and low attendance of low-
income children (especially Roma) appear as the main challenges. Several programmes aim to 
expand and improve access, quality, and coordination (e.g. 2022 National Quality Framework 
for Early Childhood Education and Care, ‘Future for Children’; ‘Strong Start’, 2024 Annual 
Plan  to  promote  ECEC  development  by  ensuring  access  to  social,  health,  educational  and 
integrated services). 

Measures to support inclusive education and avoid segregated classes  

Children with special educational needs (SEN) and/or disabilities benefit from eased access to 
mainstream ECEC, assignment of specialised staff, and reduced group size. Non-discrimination 
rule  is  explicit  in  admission  policies,  quotas  are  used  to  improve  diversity,  and  additional 
national  funding  is  used  for  improving  physical  accessibility.  Challenges  persist,  as  most 
specialist staff trained to support children with SEN are concentrated in urban areas. 

Free and effective access to ECEC, age 3-school 

Addressing the financial barriers  

Since 2022, all public ECEC in Bulgaria is free for all age groups, including costs for meals. 
Outside  of  the  public  system,  there  are  several  mechanisms  providing  financial  support  to 
families who have not been granted a place in the public facilities (e.g. due to capacity shortage). 
As of 2024, a new measure was put in place to make public transport free for all children aged 
up to 14 years. 

Addressing the non-financial barriers  

Insufficient capacity in some urban areas, sometimes unsatisfactory quality of care in segregated 
settings (147), and lower attendance of disadvantaged children (esp. Roma) appear as the main 
challenges. Several programmes aim to expand and improve access, quality, and coordination. 
The age of the compulsory pre-school programme was lowered to four years.  

147 

https://www.oecd.org/content/dam/oecd/en/publications/support-materials/2025/01/reducing-

inequalities-by-investing-in-early-childhood-education-and-care_a0fd3f31/Bulgaria-country-note-
25Feb.pdf  

109 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Measures to support inclusive education and avoid segregated classes  

Children with special educational needs (SEN) and/or disabilities benefit from eased access to 
mainstream ECEC, assignment of specialised staff, and reduced group size. Non-discrimination 
rule  is  explicit  in  admission  policies,  quotas  are  used  to  improve  diversity,  and  additional 
national  funding  is  used  for  improving  physical  accessibility.  Challenges  persist,  as  most 
specialist staff trained to support children with SEN are concentrated in urban areas. 

Free and effective access to education 

Measures to prevent and reduce early school leaving, incl. personalised guidance 

Between  2019  and  2023,  early  school  leaving  dropped  from  13.9%  to  9.3%,  below  the  EU 
average and near the 2030 target. Challenges persist in rural areas (18.8%), among Roma (only 
28%  finish  upper  secondary),  and  for  girls.  Measures  include  free  school  materials,  annual 
universal one-off benefits for school attendance of BGN 300 (EUR  153) were extended to more 
grades in 2023 and several projects financed from ESF+. 

Measures to support inclusive education and avoid segregated classes  

The  action  plan  includes  measures  on  inclusive  education,  school  desegregation,  and  anti-
discrimination. In 2024, an additional BGN 8 million was provided from the state budget to 
finance activities to provide support for the personal development of children and students with 
special educational needs. A centre for ethnic minority integration was created, and the national 
Roma inclusion strategy (2021–2030) was adopted. 

Provision of free school materials (incl. digital equipment)  

As  of  school  year  2024/2025,  textbooks  and  notebooks  are  free  in  primary  and  secondary 
schools. There is also a one-off benefit for pupils (1-4 and 8th grade) to help parents to purchase 
some of the basic supplies and clothing. ‘Digital backpack’, a platform to facilitate access to 
lessons  in  a  digital  format  for  school  children  and  allow  teachers  to  share  lessons  has  been 
created.  The  ESF+  will  continue providing  support  to  digital  skills  training  for  teachers  and 
pupils in the 2021-2027 period. 

Free transport 

As of 2024, a new measure was put in place to make public transport free for all children aged 
up to 14 years old. 

Free healthy meal each school day 

ECEC  

Since the 1st of April 2022, free meals for all children from 10 months to the starting age of 
compulsory  primary  education  (age  7)  is  provided,  namely:  free  breakfast,  lunch  and  two 
compulsory  snacks.  The  eligibility  condition  to  get  this  free  meal  is  attendance  at 
nurseries/kindergarten. 

Primary schools  

BG  has  no  universal  free  full  school  meals, but  a  few  municipalities  have  pilot projects;  all 
children receive one free snack (fruit, vegetables, milk). A scheme for supplying these products 
runs from 2023/2024 to 2028/2029. Many schools lack canteens, so parents provide lunch. The 
national plan includes a strategy for healthy nutrition, vouchers for vulnerable families with 
young children, and mechanisms for free lunches for disadvantaged pupils or support during 
school closures. A 2025 Ordinance establishes requirements for weekly menus, limits of intake 
of salt, sugar and fat, and prohibits sale of unhealthy foods in schools. 

110 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Secondary schools  

Meals or breakfasts are provided up to the 4th grade in primary school. 

Free and effective access to school-based activities 

Equal and inclusive access to school-based activities, including participation in school trips and 
sport, leisure and culture 

School-based activities are not free (with the exception of those co-financed by ESF+). The 
offer of activities is low. In 2021, share of children AROPE who suffer from the enforced lack 
of access to school trips and school events that cost money was 49.7% vs. 16.9% in the EU. An 
ESF+ co-financed project “Strengthening intercultural education, through culture, science and 
sport” has been launched. 

Framework for cooperation to provide after school care and opportunities to participate in sport, 
leisure and culture 

The  progress  report  outlines  measures  such  as  offering  academic  support  and  activities  for 
students with special educational needs, at risk, or with chronic illnesses. Programmes offering 
interest-based  activities  in  school,  visits  to  art  galleries,  and  cultural  institutions  are  also 
mentioned.  Vulnerable children access cultural activities  through the network of community 
centres  and  public  libraries.  Despite  efforts,  52.8%  of  AROPE  children  lack  regular  leisure 
access (vs. 24.1% in the EU). 

Free and effective access to healthcare 

Measures to facilitate early detection and treatment of diseases and developmental problems? 

Children  are  entitled  to  free  basic  medical  and  dental  care  (primary,  specialist,  hospital, 
specialised).  Plans  aim  to  improve  access  by  reducing  out-of-pocket  costs,  addressing  staff 
shortages, training professionals, expanding health mediators, and developing early intervention 
systems, including care for refugee and migrant children. The package of preventive activities 
is  expanded  annually.  Still,  challenges  remain,  e.g.  access  for  vulnerable  groups,  regional 
disparities, and staff shortages.  

Childhood vaccines recommended by the WHO 

High vaccination rates, except against Rotavirus. 

Measures to facilitate early detection and treatment of mental health problems 

The  National  Mental  Health  Strategy  2021–2030  funds  new  services  nationwide,  expands 
child/adolescent psychiatry, and includes needs assessments to guide specialist distribution and 
improve  territorial  access.  Challenges  persist:  long  waiting  times,  staff  shortages,  regional 
disparities. The Ministry of Health is addressing them via new Child Psychiatry clinics and a 
Children’s and Adolescent Day Care Centres). 

Free prescription medicines 

Prescribed medicines create a substantial financial burden on low-income families. From 1 July 
2025, BG National Health Insurance Fund is to fully cover antibiotics and antiviral medicines 
for children under 7, for certain acute infections. The efficiency and coverage of the measure 
remains to be seen. 

111 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Provision of targeted rehabilitation and habilitation services for children with disabilities  

Access to healthcare for children with disabilities incurs extra financial costs due to the limited 
public  funds  for  outpatient  treatment.  Lack  of  specialised  staff,  underdeveloped  support 
structures  and  long  waiting  lines  represent  a  barrier.  Focus  has  been  put  on  developing 
integrated health and social services, improving qualifications of staff, opening new Centres for 
Complex  Services  for  Children  with  Disabilities  and  Chronic  Diseases  and  increasing  their 
capacity. 

Health promotion and disease prevention programmes targeting children in need  

Multiple  national  programs  support  child  and  maternal  health,  and  their  preventive  service 
packages are gradually expanded. Information and training activities are conducted annually on 
raising  awareness  on  reproductive  health/family  planning,  child  care,  prevention  of  risk 
behaviours, support for parents to develop skills for caring for premature babies  and children 
with disabilities and special needs. The incidence of smoking among children from low-income 
families  is  high.  In  2025,  the  National  Assembly  of  the  Republic  of  Bulgaria  adopted  an 
amendment to the Law on Tobacco and on Tobacco and Related Products, banning disposable 
electronic cigarettes with and without nicotine. 

Healthy nutrition 

Access to healthy nutrition outside of school  

The action plan mentions a strategic framework for healthy nutrition, and measures financed 
through ESF+, such as vouchers for vulnerable families with young children (BGN 7.15 million 
planned to support 5,000 children in 2025), and mechanisms for free lunches for disadvantaged 
pupils. The share of children at risk of poverty or social exclusion who suffer from the enforced 
lack of access to fresh fruits, vegetables, meal with meat at least once a day is high. 

Limited advertisement and availability of unhealthy food  

Bulgaria  lacks  specialised  national  programmes  for  healthy  nutrition  outside  childcare  and 
schools. Measure 2 focuses on awareness-raising for families and training specialists. The 28 
Regional  Health  Inspectorates  monitor  compliance  with  nutrition  rules  in  kindergartens  and 
schools.  Ordinances  set  standards  for  children’s  meals  and  food  safety.  The  Food  Act  bans 
advertising to children of GM foods and foods not meeting healthy-diet requirements. 

Combatting homelessness  

Provision  of  adequate  accommodation,  prompt  transfer  from  temporary  accommodation  to 
permanent housing, and relevant social and advisory services 

Neither  the  action  plan  nor  progress  report  specify  deadlines  for  provision  of  temporary 
accommodation  for  homeless  families  with  children  and  for  their  transfer  from  temporary 
accommodation  to  permanent  housing.  The  focus  of  the  action  plan  is  put  on  affordability 
aspects rather than on access to housingThere has been a noted increase in homelessness among 
young people with very low literacy levels, as well as families with children. 

Measures to prevent the risk of homelessness among families with children 

Targeted  support  is  available  for  low-income  families.  The  action  plan  refers  to  the  2018 
National Housing Strategy (not yet adopted). Specific assistance is available for persons with 
permanent disabilities. Progress report mentions 13 housing projects worth 25.5 million BGN. 
The national housing framework is being updated to ensure access to housing and support for 
vulnerable groups through new laws, partnerships, and measures. 

112 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Effective access to adequate housing 

Measures to address energy poverty of families with children 

The action plan nor progress report discuss energy poverty. The Government has adopted an 
Ordinance  defining  criteria  and  procedures  for  identifying  energy-poor  and  vulnerable 
households based on income, energy costs, and social factors, ensuring targeted support such as 
financial aid, energy price compensation, efficiency programs, and heating assistance. 

Social housing for families with children  

Report mentions projects on social housing (e.g. increasing capacity, modernisation) and 
measures eligible for funding (e.g. provision of affordable housing for vulnerable/other 
disadvantaged groups). Supply of social housing is insufficient. For access, municipalities 
often prioritize low-income people, large families and/ families with children with disabilities. 
There are some administrative and legal barriers in access for people living in non-regulated 
dwellings. 

Good alternative care standards 

Measures  to  ensure  that  the  best  interests  of  the  child  as  well  as  their  overall  situation  and 
individual needs are considered when placing them in alternative care 

The Child Protection Act embeds the principle of the child’s best interests, forming the basis of 
major childcare reforms. The law  prioritizes family-based care, with out-of-home placement 
used only as a last resort. Social Services Act forbids residential care for children under three, 
except in cases of severe disability. Child protection bodies ensure individualized, judicially 
reviewed measures. Supported by quality standards (2022 Ordinance). 

Measures to ensure the transition of children from institutional care to quality family-based care 

Legislative changes and stronger inter-institutional cooperation have helped to improve  child 
protection.  Several projects  have  supported  deinstitutionalisation  interventions.  The  share  of 
children in residential care is below the EU average (37.1% for 2023). Challenges persist, e.g. 
availability and quality of professional foster care. These are being addressed through changes 
in  law.  There  is  also  an  annual  increase  of  state  funds  allocated  for  the  remuneration  of 
professional foster families and for the financial support for children. Data are fragmented.  

Measures to support  independent living and social integration of children leaving alternative 
care 

The  action  plan  includes  measures  to  support  young  people  leaving  alternative  care  by 
strengthening social worker and mentor capacity and testing support for employment,  social 
skills, housing, and family planning. A monthly benefit equal to the poverty line aids individuals 
aged  18–21  leaving  care  establishments.  Specialised  legislation  ensures  individual  plans  for 
independent  living,  training, and  life-skill  programs.  ESF +  funding  is  used  for  counselling, 
career guidance, and psychosocial support. 

Outreach and awareness raising 

A series of webinars on the European Child Guarantee in Bulgaria, organized by the National 
Network for Children and the Ministry of Labour and Social Policy, promoted its goals across 
areas  like  health,  nutrition,  education,  and  housing.  The  action  plan  and  progress  report 
highlight  awareness-raising  efforts,  including  campaigns  on  child  poverty  and  empathy. 
However, outreach actions for disadvantaged families need further detail. 

113 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Stakeholders’ involvement 

The action plan provides details on consultations with ministries, civil sector, local authorities, 
children.  The  progress  report  was  developed  by  the  Permanent  Expert  Working  Group  to 
support the coordination and monitoring of the ECG. The group includes representatives of the 
civil sector and academia. The Report was also discussed by the National Council on Social 
Inclusion  to  the  Council  of  Ministers,  composed  of  representatives  of  state  institutions, 
municipalities, social partners, NGOs, academics. The Report was approved by the high level 
Inter-Institutional  Working  Group  established  by  Prime  Minister's  Order,  composed  of  all 
responsible institutions at the level of ministers and heads. 

114 

 
 
 
 
 
 
 
CZECHIA 

Identification of children in need  

The action plan lists various kinds of disadvantage, along with precise or estimated numbers 
how many children are affected by each of them. Updates are provided in the first progress 
report. However, there is no clear formula how to operationalise the statistical notion of the risk 
of poverty or social exclusion and, due to possible overlaps, the total number of children in need 
is not given. 

Free and effective access to early childhood education and care (ECEC), age 0-3 

Addressing the financial barriers 

According to ESPAN, costs of childcare are high, but fees can be waved for recipients of social 
assistance (this does not cover all children in need). Participation rates are low, both for children 
AROPE and not AROPE (in 2024, respectively 6.4% and 7.4% according to EU-SILC, with 
higher numbers according to national data). According to the progress report, work has started 
on analyses reflecting the barriers to children’s participation in ECEC. 

Addressing the non-financial barriers 

The  capacity  of  public  ECEC  facilities  is  low  and  children  under  three  do  not  have  a  legal 
entitlement to placement. According to the progress report, 7,500 places in children’s groups 
will be created by 2030 – disproportionately little when compared with the number of children 
(ca. 77,000 born in 2025). Staffing shortages in children groups are being addressed through 
flexible qualification pathways. 

Measures to support inclusive education and avoid segregated classes  

According  to  Eurydice  report,  children  from  migrant  backgrounds  benefit  from  priority 
admission, and access and participation in mainstream ECEC is eased for children with special 
education  needs  and/or  disabilities.  The  non-discrimination  rule  is  explicit  in  admission 
policies. There is an explicit non-discrimination rule in admission policies, but the inclusiveness 
of the system is compromised by very low overall ECEC participation rate (7.3% in 2024). 

Free and effective access to ECEC, age 3-school 

Addressing the financial barriers  

Fees charged by public ECEC facilities are low (according to the progress report, on average 
CZK 387, €  16, per month in 2021/2022, with big differences between regions). Private child 
groups are more expensive. Much fewer children AROPE participate in ECEC than those not 
AROPE  (in  2024,  73.0%  vs  83.4%).  According  to  the  progress  report,  work  has  started  on 
analyses on the barriers to children’s participation in ECEC. Compulsory free childcare as of 
the age of 5 years. 

Addressing the non-financial barriers  

Despite legal entitlement to childcare starting at age of 3 years, the capacity of public ECEC 
facilities  is  low.  According  to  the  progress  report,  7,500 places  in  children’s  groups  will  be 
created  by  2030  –  disproportionately  little  when  compared  with  the number of  children  (ca. 
77,000 born in 2025). 

115 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Measures to support inclusive education and avoid segregated classes  

As  per  2025  Eurydice  report,  children  with  migrant  background,  those  at  risk  of poverty  or 
social  exclusion,  and  those  with  special  educational  needs  and/or  disabilities  get  support  of 
specialised staff. The last category benefit also from the reduced group size, while interpretation 
is available for communication with parents with migrant background. There is an explicit non-
discrimination rule in admission policies and extra funding for better physical accessibility and 
supporting social inclusion. 

Free and effective access to education 

Measures to prevent and reduce early school leaving, incl. personalised guidance 

The action plan set as a target for 2030 to reduce the incidence of early school leaving to 5.5%, 
listing ten respective measures (A.2.1.1, A.2.2.1, A.2.2.2, A.2.2.3, A.2.2.4, A.2.2.5, A.2.2.6, 
A.2.2.7, A.2.3.1, A.2.3.2). The progress report discusses in detail the state of play on measures 
A.2.1.1 and A.2.2.2, only cursorily mentioning the remaining ones. The target has been already 
achieved, the incidence of early leaving from education and training standing at 5.4% in 2024, 
sixth lowest in the EU. 

Measures to support inclusive education and avoid segregated classes  

The action plan set as target for 2030 to halve to 35 the number of schools with Roma majority. 
The 2025 biennial report states that no progress has been achieved in this regard, given that 
there were 75 such schools in 2023/2024. Moreover, Roma constitute at least 33% of pupils in 
130 schools and 29.1% of children in programmes for pupils with mild mental disabilities. The 
report stresses the importance of psychological support and provision of out-of-school activities 
as relevant remedies.   

Provision of free school materials (incl. digital equipment)  

Books and school materials are not free of charge. Many schools and civil society organisations 
support pupils from low-income families, including through donations of used textbooks. The 
progress report describes several expired projects that provided in-kind support. 

Free transport 

No information, the 2024 progress report states that this domain will be discussed in the 2026 
report. 

Free healthy meal each school day 

ECEC  

Lunches in kindergartens are not universally provided free of charge; however, children from 
low-income families may receive free meals through the “School Meals” programme, subject 
to eligibility based on material-need benefits and the participation of the kindergarten. 

Primary schools  

There is no systemic measure to provide free school meals for low-income children, but there 
have been projects targeted at children from the most vulnerable households. The  eligibility 
thresholds  for  those  projects  and  the  resulting  number  of  beneficiaries  have  been  low.  The 
affordability of school lunches is ensured by coverage of the staff costs and overheads from 
public sources. 

Secondary schools  

There  is  no  specific  information  on  free  school  meals  for  children  in  need  at  secondary 
education level. Thus, similar arrangements as in primary schools are assumed to operate. 

116 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Free and effective access to school-based activities 

Equal and inclusive access to school-based activities, including participation in school trips and 
sport, leisure and culture 

A system of grants supports provision of extracurricular activities by schools and civil society 
organisations. It is not clear from the progress report, how many children in need benefit from 
those. 

Framework for cooperation to provide after school care and opportunities to participate in sport, 
leisure and culture 

Preparatory  work  has  started  on  establishment  of  cooperation  frameworks  for  educational 
institutions, childcare services, local communities, social and health services, child protection 
services, families and other actors to promote inclusive education, provision of out-of-school 
care and opportunities to engage in sports, leisure and cultural activities. 

Free and effective access to healthcare 

Measures to facilitate early detection and treatment of diseases and developmental problems? 

Screening programmes  in  hearing, vision  and general  health  are  available  at  post-natal, first 
years, and school years stages, until the age of 19. The dental check-ups are conducted at first 
years and school years stages. The action plan and progress report spell out the details of those 
programmes and stress the universal coverage of the public healthcare system but also point to 
persistent gaps and shortages (e.g. high age of paediatricians). No information on number of 
children screened is given.    

Childhood vaccines recommended by the WHO 

Out of all childhood vaccines recommended by WHO, only Polio has an adequate coverage rate 
(97%), while the remaining ones are below the averages for the Europe WHO region. The action 
plan does not explain those weak outcomes and discusses vaccinations only in the context of 
the influx of refugee children from Ukraine. 

Measures to facilitate early detection and treatment of mental health problems 

The action plan and progress report stress the persistent shortages in supply of psychiatric and 
psychologic care for children (esp. in some regions). Various initiatives to improve the situation 
are discussed in the progress report. Yet, their successful implementation would only improve 
the treatment standards, without addressing the early detection aspect. 

Free prescription medicines 

According  to  the  EU  ECG  Monitoring  framework,  only  a  specific  range  of  prescription 
medicines are free of charge for low-income children. Neither the action plan nor the progress 
report discuss this aspect.    

Provision of targeted rehabilitation and habilitation services for children with disabilities  

The action plan points to gaps in provision of services for children with disabilities and includes 
Measure B.2.1.1 which aims to develop adequate medical rehabilitation care. The first biennial 
report  states  that  respective  achievements  in  implementation  will  be  reported  in  the  next 
progress report. 

117 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Health promotion and disease prevention programmes targeting children in need  

The action plan mentions low health literacy among barriers to really equal access to healthcare 
and includes four measures (B.3.1.1, B.3.1.2, B.3.1.3 and B.3.1.4) that support programs and 
services in the area of prevention and education of families with children. The progress report 
provides updates on implementation of another four projects, launched prior to establishment 
of the ECG. 

Healthy nutrition 

Access to healthy nutrition outside of school  

The access to healthy nutrition outside of school days is supported through FEAD projects and 
food banks. None of those are targeted specifically at children in need. 

Limited advertisement and availability of unhealthy food  

There  is  no  statutory  ban  on  advertising  unhealthy  foods  to  children.  However,  legislation 
provides general protections for children in advertising by prohibiting misleading, harmful, or 
exploitative practices. In addition, industry self-regulatory codes apply, and stricter standards 
are typically observed in children’s programming on the public broadcaster.  

Combatting homelessness  

Provision  of  adequate  accommodation,  prompt  transfer  from  temporary  accommodation  to 
permanent housing, and relevant social and advisory services 

The Housing Support Act, which entered into force on 1 January 2026, establishes a systemic 
approach to preventing and addressing housing distress, protecting up to 1.6 million people. 
Priority  is  given  to  vulnerable  groups,  including  children,  single  parents,  and  victims  of 
domestic violence. Municipalities may provide supported housing, while the state supplies tools 
and  funding.  The  Act  curbs  exploitative  practices  and  establishes  Housing  Contact  Points, 
which provide guidance and assistance.  

Measures to prevent the risk of homelessness among families with children 

In 2024, the share of children AROPE living in households facing housing cost overburden was 
50.6%,  among  the  highest  in  the  EU.  Housing  Promotion  Act  has  been  adopted  by  the 
Parliament  and  will  enter  into  force  in  2026.  If  successful,  this  will  help  to  address  the 
recommendations on prevention and combating of homelessness among families with children. 

Effective access to adequate housing 

Measures to address energy poverty of families with children 

The income-tested Housing Allowance (part of the social support system) and the Supplement 
for Housing (under the Minimum Income Scheme) assist low-income families to cover their 
housing-related expenditures. Despite relative generosity of the Housing Allowance and wide 
eligibility (ca. 24% of households), only 4% of households claim it. At 16.0% in 2024, the share 
of children AROPE living in households unable to keep home adequately warm was well below 
the EU average (24.0%). 

Social housing for families with children  

There is no national legal framework that would regulate access to public/social housing. The 
exact number of dwellings made available by municipalities for affordable rentals is not 
known. According to a survey from 2019, about a third of municipalities take family 
composition and social distress into consideration when allocating public rentals.    

118 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Good alternative care standards 

Measures  to  ensure  that  the  best  interests  of  the  child  as  well  as  their  overall  situation  and 
individual needs are considered when placing them in alternative care 

According to the progress report, preparatory work on new legislation on child protection and 
family  support,  which  would  follow  the  best  interest  principle  and  secure  children’s 
participation in the decision-making process, is ongoing. 

Measures to ensure the transition of children from institutional care to quality family-based care 

The share of children in residential institutions among all children in alternative care is low 
(25.7%)  and  further  measures  are  envisaged  (e.g.  ban  on  putting  children  under  3  y.o.  in 
institutions, increased remuneration for foster parents etc.) 

Measures to support independent living and social integration of children leaving alternative 
care 

Two  care  allowances  for  young  adults  under  26  y.o.  were  introduced  in  2022:  (a)  recurrent 
allowance  for  those  who  remain  dependent  after  the  age  of  majority  (presupposing  the 
continuation  of  alternative  care  and  cooperation  with  the  social  curator  of  the  municipal 
authority); (b) one-off allowance on leaving alternative care.  “A methodology for the departure 
of young adults from residence facilities” is being developed, in direct cooperation with young 
adults. 

Outreach and awareness raising 

Awareness-raising is mentioned in the context of preventive  healthcare measures, as well as 
Roma integration, child participation, support for pupils with learning difficulties, prevention 
of risky behaviours, promotion of flexible working arrangements, tackling discrimination and 
stigmatisation. The action plan does not elaborate on the outreach to specific target groups. It is 
not clear whether those measures effectively encourage and facilitate the take-up of services 
covered by the ECG. 

Stakeholders’ involvement 

Stakeholder involvement is mentioned at various points in the action plan and first progress 
report. However, it is not clear that they were consulted in a systemic manner and that such 
consultations are planned also in next stages of the ECG process. Additional consultations are 
planned for 2026, in light of the possible adjustments to the action plan. 

119 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
DENMARK 

Identification of children in need  

As explained in the action plan, there is no unique definition of  vulnerability among children 
and young people in Denmark. The right-based approach results with a broad understanding of 
being in need and the use of individual assessments. For children identified as being in need of 
special support,  the municipalities are obliged to provide it and accommodate  their concrete 
needs. 

Free and effective access to early childhood education and care (ECEC), age 0-3 

Addressing the financial barriers 

75% of childcare costs are covered from public resources. The childcare fees are income tested. 
The progress report states that in 2022, 9% of children enrolled in childcare were eligible for 
full free place allowance, with further 24% eligible for partial fee reduction. Those shares were 
lower than 2 years prior and lower than the incidence of the risk of poverty or social exclusion 
among children (17.1% in 2022). 

Addressing the non-financial barriers 

If parents have registered their child as in need of childcare, and municipality is unable to offer 
a place in their own institutions within 26 weeks, it must cover the costs of private childcare, 
pay the expenses of a childcare place in another municipality, or give an economic subsidy to 
the family to take care of their own children. 

Measures to support inclusive education and avoid segregated classes  

In  all  ECEC  facilities,  a  pedagogical  curriculum  must  be  developed  ensuring  a  learning 
environment in which all children – regardless of their individual abilities and backgrounds – 
can  thrive,  participate,  and  develop.  The  local  authorities  are  obliged  to  perform  a  language 
assessment of all children at the age of 2 or 3 years and propose a fitting language stimulation. 
Measures  for  inclusive  education  of  children  with  other  kind  of  disadvantage  than  migrant 
background have not been specified. 

Free and effective access to ECEC, age 3-school 

Addressing the financial barriers  

Same analysis as for 0-3 age group. 

Addressing the non-financial barriers  

Same analysis as for 0-3 age group. 

Measures to support inclusive education and avoid segregated classes  

Children aged above 3 years who are under care of the Danish Immigration Service are offered 
playgroups, which provide a structured daily life, quality educational services, and activities. 
Immigrant  children  and  those  born  in  Denmark  of  migrant  parents  have  lower  ECEC 
participation rates than native Danes yet increasing with age. Measures for inclusive education 
of children with other kind of disadvantage than migrant background have not been specified. 

120 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Free and effective access to education 

Measures to prevent and reduce early school leaving, incl. personalised guidance 

According to the 2024 progress report the new evaluation and assessment system in primary 
and lower secondary schools puts focus on identifying students with difficulties. Municipalities 
are obliged to designate ‘contact person’ for every individual in grade 8 of elementary school 
onwards for whom support to remain in education or employment is needed. In addition to this, 
the head of the institution must draw up guidelines for well-being and continuation, including 
on reducing dropout rates and on procedures for changing courses or dropping out. 

Measures to support inclusive education and avoid segregated classes  

The action plan stresses that all pupils have a legal entitlement to an education that meets their 
needs, and progress report emphasises that within the  Folkeskole system pupils  with special 
needs or disabilities should stay in the regular classes (with adequate help) rather than being 
segregated  to  institutions  with  special  education.  Various  forms  of  targeted  support  are 
described. 

Provision of free school materials (incl. digital equipment)  

Books,  IT  software  and  internet  connections  are  provided  free  of  charge  by  public  schools. 
Schools often ask parents to equip their children with a portable PC or tablet, but obligation to 
do so falls ultimately – according to Ombuds’ 2018 ruling – on municipalities. Basic materials 
such as a schoolbag or stationery are not covered, but also here many municipalities step in. 

Free transport 

Pupils with a long distance to the district (primary) school are entitled to free transport to and 
from school. The eligibility criteria do not relate to income but solely to the distance and pupils’ 
age. No free transport is provided for secondary school students. 

Free healthy meal each school day 

ECEC  

All children in ECEC must receive a healthy lunch. Financing (as part of tuition fee, which is 
in  75%  covered  by  municipality  or  as  a  separate  fee  paid  by  parents)  differs  between 
municipalities. Subsidies are in place, leading to ca. 10% of children enrolled in ECEC receiving 
meals for free and further ca. 26% eligible for price reduction.   

Primary schools  

In  primary  and  lower  secondary  schools,  provision  and  financing  of  school  meals  is  at  the 
discretion of the local authorities. Denmark has launched a trial for a new nation-wide school 
meals scheme, that will be carried out until 2028. The project aims to gather knowledge and 
experience regarding school meals in Denmark. The ambition is to gain insights into different 
ways of organising school meal programs and to better understand the impact of school meals 
on  students'  health,  learning,  and  well-being.  A  total  of  approximately  €   114  m  has  been 
reserved for the trial. 

Secondary schools  

There are no nationwide rules to ensure that each student receives a healthy meal every day at 
school.  However,  upper  secondary  schools  may  establish  canteen  operations,  which  may  be 
subsidized under certain circumstances. 

121 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Free and effective access to school-based activities 

Equal and inclusive access to school-based activities, including participation in school trips and 
sport, leisure and culture 

School camps and excursions are free, with possible exception of food costs. Parents usually 
arrange  a  saving  scheme  and/or  a  collection  to  finance  camp  cost  not  covered  by  the 
municipality.  Pupils  cannot  be  excluded  from  school  camps  because  their  parents  have  not 
contributed to food cost or the savings schemes. 

Framework for cooperation to provide after school care and opportunities to participate in sport, 
leisure and culture 

The municipalities provide subsidies for activities for children and young people under the age 
of 25 and provide premises for voluntary, civic education associations. The state subsidizes the 
Danish  Sports  Confederation,  the  DGI  and  the  Danish  Youth  Council,  which  support  local 
associational life, including for children and young people. Various cultural activities are also 
subsidized from state budget. 

Free and effective access to healthcare 

Measures to facilitate early detection and treatment of diseases and developmental problems? 

The screening programmes in general health and dental check-ups are conducted regularly until 
the age of 16 years, while hearing screening is conducted at post-natal and school stage, and 
vision screening in early years and school years. There is no information on how many children 
in need benefit from those schemes. However, additional opportunities for early detection and 
treatment of diseases stem from healthcare visitors operation.  

Childhood vaccines recommended by the WHO 

Vaccination rates against Diphtheria-Tetanus-Pertussis, Haemophilus influenzae B, Hepatitis 
B, Measles, Pneumococcal disease, Polio, and Rubella are high (94% to 97%). No data available 
on the share of one-year-olds vaccinated against Rotavirus. The ESPAN report points out that 
vaccination rates are significantly lower (87% to 92%) for children aged 5 years and states that 
lower take-up is correlated with lower household incomes. 

Measures to facilitate early detection and treatment of mental health problems 

In  the  action  plan,  the  only  reference  to detection  of  mental  health  problems  is  made  in  the 
context of newly arrived immigrant children. The first progress report stresses that treatment 
and investigation of mental illnesses is subject to the same rules that apply to other kinds of 
healthcare, resulting with effective access to free and high-quality healthcare for all children. 

Free prescription medicines 

The  subsidy  to  cover  the  patient’s  share  of  the  payment  for  medicine  has  been  increased, 
available to citizens that have been in the cash benefit system for at least 12 months within the 
past 18 months. For children of cash benefit recipients, the entitlement to the full subsidy is 
from  day  one.    In  addition,  related  to  the  new  social  assistance  reform  from  2025,  a  new 
medication subsidy has been introduced for children who live with a parent receiving social 
security benefits, meaning their costs for eligible prescription medication are fully covered. 

122 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Provision of targeted rehabilitation and habilitation services for children with disabilities  

There is no official definition of disability and thus Denmark does not have data on the total 
population  of  children  and  young  people  with  disabilities,  but  only  on  those  who  receive 
services. Therefore, it isn’t possible to determine whether 75% of all children and young people 
with  disabilities  receive  rehabilitation  and  habilitation  services.  However,  the  municipal 
councils are obliged to offer the necessary assistance, and there is no indication that any children 
with disabilities are missing the necessary rehabilitation services. 

Health promotion and disease prevention programmes targeting children in need  

The  Danish  Health  Act  states  that  the  municipal  council  shall  offer  all  children  and  young 
people free health guidance, assistance, and functional examinations by a health visitor until the 
end  of  compulsory  education.  Furthermore,  as  part  of  the 2022  Health  Reform, a  model  for 
differentiation in healthcare has been extended to all municipalities in the country. The purpose 
of the model is to reduce health inequalities and prevent negative social inheritance by targeting 
interventions towards families and provide extra support to families who need it.  

Healthy nutrition 

Access to healthy nutrition outside of school  

Act  on  Social  Services  states  that  children  and  young  people  who  are  dependent  on  social 
services must be given access to the necessary practical help, including nutrition. In the event 
that a child comes to school or day-care without a packed lunch, the professional staff have an 
increased obligation to inform the municipality. Appropriate remedies (incl. financial support) 
are then implemented. 

Limited advertisement and availability of unhealthy food  

As  part  of  Cancer  Plan  V,  the  Danish  government  will  tighten  the  Marketing  Act  and  ban 
advertising for unhealthy food and beverages aimed at children under 15 years of age. 

Combatting homelessness  

Provision  of  adequate  accommodation,  prompt  transfer  from  temporary  accommodation  to 
permanent housing, and relevant social and advisory services 

The action plan states that the municipalities are obliged to provide people who have lost their 
home  with  temporary  shelter  as  soon  as  possible  (against  payment).  Transfer  to  permanent 
housing is subject to the general rules of access (incl. social integration measures). The social 
housing sector provides advice to tenants at risk of eviction on budgeting, debts etc. The number 
of evictions has decreased significantly since 2009. 

Measures to prevent the risk of homelessness among families with children 

In 2024, the share of children AROPE living in households facing housing cost overburden was 
in line with EU average (20.3% vs 21.2%). A political agreement from December 2025 aims at 
kick-starting the construction of affordable social housing. This involves raising the ceiling on 
construction costs (maksimumbeløbet) and the amount of grants for the  construction of very 
affordable  social  housing  units  with  reduced  rent.  DKK  150  million  are  also  allocated  to 
temporary reductions of rent in social housing units for families with low income and urgent 
housing need. 

123 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Effective access to adequate housing 

Measures to address energy poverty of families with children 

The share of children AROPE living in households unable to keep home adequately warm was 
in 2024 significantly below the EU average (15.8% vs 24.0%). Housing benefit (boligstøtte) is 
based on household income and composition, with thresholds adjusted when there are children 
in the household. During the 2022–23 energy-price and inflation shock, Denmark introduced 
tax-free  one-off  payments  to  vulnerable  groups,  including  single  parents  and  low-income 
families on social assistance.  

Social housing for families with children  

Denmark has one of the highest shares of public housing in the EU (20%, referred to as 
“social” in the action plan), with ca. 500,000 housing units fit for families. According to the 
action plan, housing organizations are obliged to serve prospective tenants according to a 
waiting list and, i.e. first-come first-served principle. 

Good alternative care standards 

Measures  to  ensure  that  the  best  interests  of  the  child  as  well  as  their  overall  situation  and 
individual needs are considered when placing them in alternative care 

As per progress report, procedure for placement of children in alternative care gives preference 
to supportive measures delivered home settings. Individual assessment of child’s needs and best 
interest,  and  development  of  personalised  intervention  plan  are  required.  Placement  in 
alternative care without child’s and custodian’s consent can only be undertaken if there is a risk 
of serious harm to the health or the development of the child. 

Measures to ensure the transition of children from institutional care to quality family-based care 

The progress report stresses 12% drop in the number of children in alternative care between 
2012 and 2022, and prevalence of alternative care provided by foster families (64%) over this 
in residential institutions (36%). 

Measures to support  independent living and social integration of children leaving alternative 
care 

It is possible to provide support to young people over the age of 18 in accordance with the rules 
of the Child's Act in the form of youth support, e.g., finding independent housing. Youth support 
can be provided until the young person reaches the age of 23. 

Outreach and awareness raising 

The municipalities have a general obligation to monitor the  living conditions of the resident 
children  and  to  offer  free  family  counselling.  All  citizens  have  an  obligation  to  notify  the 
authorities if they have knowledge of a child experiencing neglect. Professionals and public 
workers  have  an  expanded  obligation  to  notify  the  authorities.  Under  ‘Children  First’ 
agreement, funds were allocated for “Family houses” that offer advice to expectant parents and 
families with small children. 

Stakeholders’ involvement 

The  Danish  legislative  and  decision-making  processes  ensure  a  high  degree  of  stakeholder 
involvement.  As  part  of  the  2021  Child’s  Act,  a  permanent  consultative  body  of  nine 
stakeholders,  including  municipal  representatives  and  civil  society  organisations,  has  been 
established.  In  the  period  2024-2025  a  “Task  Force  on  violence  against  children  and  young 
persons” was also active. No information on consultations with children. 

124 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
GERMANY 

Identification of children in need  

The ECG action plan and the implementation report identify children in need and report the size 
of groups of children in need experiencing specific disadvantages (e.g. estimate of number of 
homeless  children).  Per  most  (not  all)  of  the  services  covered  by  the  ECG,  the  action  plan 
specifies categories of children who experience difficulties with accessing them. 

Free and effective access to early childhood education and care (ECEC), age 0-3 

Addressing the financial barriers 

There  is  a  nationwide  obligation  to  stagger  parental  contributions,  based  among  others  on 
parental income, with regional disparities. Recipients of social assistance benefits are exempt 
from  fees.  The  education  and  participation  package  (Bildungs-  und  Teilhabepaket)  supports 
low-income families in financing additional costs for ECEC, such as expenses for trips or lunch. 
Cost remains stressed as a barrier in the progress report. 

Addressing the non-financial barriers 

Target to build 90,000 new childcare places was set in the framework of the RRF, but the extent 
to which disadvantaged children will benefit from them and whether this will be enough to meet 
the  demand  remain  unclear.  A  strategy  has  been  put  forward  by  the  federal  government  to 
address staff shortages. There is some evidence of regional disparities in terms of ECEC quality, 
yet there is plan to advance existing legislation at the federal level into a law with nationwide 
quality standards. 

Measures to support inclusive education and avoid segregated classes  

Besides  availability  of  skilled  specialists,  integration  assistance  for  children  with  disability, 
language  support,  and  measures  to  improve  staff/children  ratios  in  disadvantaged  areas 
mentioned in the progress report, there is little evidence of large-scale policies aimed to adapt 
facilities and educational materials for disadvantaged children. A Quality Development Act is 
to be introduced to among other promote targeted support where necessary. 

Free and effective access to ECEC, age 3-school 

Addressing the financial barriers  

Same analysis as for 0-3 age group. 

Addressing the non-financial barriers  

Same analysis as for 0-3 age group. 

Measures to support inclusive education and avoid segregated classes  

Same analysis as for 0-3 age group. 

125 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Free and effective access to education 

Measures to prevent and reduce early school leaving, incl. personalised guidance 

The incidence of early leaving from education or training has remained broadly stable, above 
the  EU  average.  Complementing  large  scale  programmes  to  broadly  support  disadvantaged 
pupils, some programmes address early school leaving more directly (e.g. through mentorship). 
Various difficulties in implementation are reported (e.g. to identify the children in need). The 
Länder have various systems to identify and help affected students. 

Measures to support inclusive education and avoid segregated classes  

The gap in the incidence of underachievement between disadvantaged and advantaged children 
is close to the EU average in Germany. Some large-scale measures are implemented to further 
support  disadvantaged  pupils  and  pupils  with  special  educational  needs.  The  Startchancen 
programme provides schools with large share of socioeconomically disadvantaged pupils with 
targeted support, through e.g. individual counselling. However, only ca. 4,000 schools (10% of 
total) are covered. 

Provision of free school materials (incl. digital equipment)  

School  textbooks  are  provided  free  of  charge  in  some  federal  states.  Financial  support  for 
minimum income recipients is adjusted in view of covering costs of basic school material for 
children; yet whether this adjustment allows to cover all school material’s expenses remains 
unclear. Some evidence of programmes funded by the federal government to equip schools with 
IT devices. 

Free transport 

Financial  support  for  minimum  income  recipients  is  adjusted  in  view  of  covering  cost  of 
transportation  for  children  in  schools.  For  secondary  school,  the  actual  costs  of  student 
transportation are covered. For primary school, there are different state regulations. 

Free healthy meal each school day 

ECEC  

Quality  standards  for  catering  are  available  and  in  some  Länder  they  are  implemented  on  a 
mandatory basis. The amount of the Education and Participation Benefits (BuT) is adjusted to 
account  for  the  expenses  related  to  school  feeding  programmes  and  the  Youth  Allowance 
provides financial support too. Yet, low take-up rate of such top-up is also reported, and the 
German share of children AROPE not able to afford a healthy meal daily (with protein) is above 
EU average. 

Primary schools  

Same as for ECEC. 

Secondary schools  

Same as for ECEC. 

126 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Free and effective access to school-based activities 

Equal and inclusive access to school-based activities, including participation in school trips and 
sport, leisure and culture 

German rates of children AROPE lacking access to regular leisure and school-based (e.g. school 
trips) activities below the EU average, yet a 15 p.p. gap with children not AROPE persists for 
leisure  activities.  Large-scale  measures  aimed  to  further  guarantee  inclusive  access  to  these 
activities  are  taken  (e.g.  coverage  of  expenses  for  school  trips  under  the  Federal  Youth 
Allowance), but up-take is limited. 

Framework for cooperation to provide after school care and opportunities to participate in sport, 
leisure and culture 

There is evidence of cooperation frameworks, but the scope of  the projects financed so far is 
not clear. The progress report mentions some isolated projects as examples of good practice, 
but no nation-wide data was collected from among all Länder. Legal entitlement to full-day care 
in primary schools will come into force in 2026, including cooperation with multiprofessional 
partners. 

Free and effective access to healthcare 

Measures to facilitate early detection and treatment of diseases and developmental problems? 

The implementation report highlights  measures for early detection and treatment of diseases 
and developmental issues, emphasizing comprehensive statutory health insurance. There is a 
wide range of screenings available for free from post-natal to school years. 

Childhood vaccines recommended by the WHO 

Access to healthcare is free for insured children, covering preventive measures, and ensuring 
access to vaccines such as vaccines against Polio, Measles, and Hepatitis B. Large cities also 
offer additional free vaccinations. In terms of take-up rates, evidence suggests some scope for 
progress. For uninsured children needing healthcare, they may receive vaccinations through the 
Asylum Seekers’ Benefit Act or other regulations. 

Measures to facilitate early detection and treatment of mental health problems 

Medical checkups for children and adolescents are covered 100% by statutory health insurance. 
Diagnostics and therapy by child, adolescent psychiatrists, and others are also fully covered. 
Further  measures  include  online  counselling  (JugendNotmail).  The  Mental  Health  coaches 
programme was showing good results, but it was discontinued as of end 2025. While waiting 
lines for mental health support occur (some evidence of 4–5-month long waits). According to 
the German Scholl Barometer 2025/2026, psychological stress among children and adolescents 
in Germany is increasing again for the first time  since the COVID-19 pandemic, and young 
people from low-income families are particularly affected. 

Free prescription medicines 

For  children  with  health  insurance,  prescription  medicines  are  free,  aiding  disadvantaged 
children. However, barriers persist for uninsured or asylum-seeking children. 

Provision of targeted rehabilitation and habilitation services for children with disabilities  

While health insurance covers some rehabilitation services, more targeted initiatives are also 
mentioned  in  the  implementation  report,  ranging  from  the  Disability  Equality  Act  which 
improves infrastructures and aids for people with disabilities to specific actions taken to e.g. 
adjust holiday centres to the special needs of children with disabilities. There is some evidence 
of access barriers (e.g. waiting lines), limiting access. 

127 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Health promotion and disease prevention programmes targeting children in need  

Health  insurance  funds  support  a  wide  range  of  health  promotion  and  prevention  measures 
designed to reach people in their everyday environments. In 2024, 10,871 measures (21%) were 
carried out in elementary schools and 14,695 (28%) in daycare centers. A further 14,131 (27%) 
reached secondary schools, including special needs schools. More information, e.g. on these 
measures’ scope, will be needed to achieve higher compliance. 

Healthy nutrition 

Access to healthy nutrition outside of school  

Besides the basic allowance for low-income households adjusted to account for food expenses, 
there are projects promoting food literacy to maintain a healthy diet even on low income. For 
example, a project is developing a nutrition and health education programme for children's and 
family  centres  in  disadvantaged  districts.  Yet  there  is  scope  for  progress  (e.g.  the  share  of 
children AROPE not able to afford a healthy meal daily (with protein) is above EU average). 

Limited advertisement and availability of unhealthy food  

A  special  Code  of  Conduct  on  Commercial  Communication  for  Foods  and  Beverages  for 
advertising (online and offline) has been developed by the German Advertising Federation to 
protect children. Yet there is among others a gap in overweight rates between children with low 
(30%)  and  high  family  affluence  (16%)  larger  than  the  EU  average,  suggesting  scope  for 
progress. 

Combatting homelessness  

Provision  of  adequate  accommodation,  prompt  transfer  from  temporary  accommodation  to 
permanent housing, and relevant social and advisory services 

Germany  aims  to  end  homelessness  by  2030,  with  a  2024  action  plan  to  tackle  housing 
exclusion. Measures include among others social service support and public housing subsidies. 
Although  support  exist,  details  of  transition  from  temporary  to  permanent  housing  remain 
unclear.  There  has  been  increase  in  the  number  of  children  experiencing  housing  exclusion, 
which suggests scope for progress.   

Measures to prevent the risk of homelessness among families with children 

Germany actively implements measures to prevent family homelessness, focusing on housing 
benefits, social rent schemes, social housing and purchasing support programmes which reduce 
eviction risks for low-income families. However, the share of children AROPE in households 
facing housing cost overburden is slightly above the EU average which suggests that further 
efforts are needed. 

Effective access to adequate housing 

Measures to address energy poverty of families with children 

Energy poverty is addressed through financial support to help costs of heating and buildings 
refurbishment. One instrument is the housing benefit, which supports ca. 400,000 low-income 
households.  The  share  of  children  AROPE  living  in  households  unable  to  keep  their  homes 
adequately warm is below the EU average. Housing cost overburden (11.1% in 2025) is above 
the EU average (8.2% in 2024). The social housing stock has decreased significantly in the last 
20 years, from 2.5 million to 1 million units, pointing to a need for policy action. 

128 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Social housing for families with children  

The government plans to invest up to € 5.5 million in 2028 in social housing programs of the 
Länder. The annual number of the subsidized units is rising since 2022. Vulnerable families 
with children can benefit from priority, with some local differences. There is some evidence 
of waiting lists and lack of supply. 

Good alternative care standards 

Measures  to  ensure  that  the  best  interests  of  the  child  as  well  as  their  overall  situation  and 
individual needs are considered when placing them in alternative care 

While the progress report underlines that the best interest of the child is considered, there are 
legal  provisions  to  involve  children  in  the  design  of  their  assistance  type  (e.g.  a  care  plan 
meeting  is  to  be  organised  with  the  children  and  legal  guardians).  More  information  on 
implementation will be necessary for higher compliance. 

Measures to ensure the transition of children from institutional care to quality family-based care 

Out of the total number of children in alternative care, around half of them are in residential 
care, which is above the EU average. Some measures are taken to increase foster care (e.g. with 
public awareness campaign to recruit more foster care parents). 

Measures to support independent living and social integration of children leaving alternative 
care 

While Germany implements measures to support independent living in general, a database has 
been developed to better monitor life trajectories of care leavers, alongside an evaluation of care 
leavers  support.  According  to  the  progress  report,  care  leavers  are  subject  to  poverty, 
unemployment and mental illness at an above-average rate, suggesting scope for progress. 

Outreach and awareness raising 

Germany  takes  several  awareness-raising/communication  actions  (e.g.  development  of  new 
digital tools), alongside more active outreach targeting some groups of children in need (e.g. 
refugee children and homeless children). Yet, no estimate of non-take-up rates is provided, not 
allowing to assess whether the scope of these measures is large enough to be fully compliant. 

Stakeholders’ involvement 

Various stakeholders were consulted for the design of the action plan and the drafting of the 
implementation  report,  including  children  and  NGOs.  Given  their  competences,  higher 
involvement of Länder and local authorities throughout the implementation of the ECG will be 
key to achieve higher compliance. 

129 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
ESTONIA 

Identification of children in need  

The  action  plan  discusses  various  aspects  of  the  risks  of  poverty  and  social  exclusion 
experienced by children but does not include a workable definition of the target group.  Update 
on figures are provided in the biennial reports. Child well-being dashboard is being developed 
to measure well-being of children and impact of measures (to be finalised by end of 2027). 

Free and effective access to early childhood education and care (ECEC), age 0-3 

Addressing the financial barriers 

ECEC is provided in unitary settings for children under three years of age and older. Fees for 
children from 18 months to school age vary by locality (max. 20% of the minimum wage, but 
in many cases lower). There are exemptions from payments for low-income children. Certain 
municipalities cover costs of private childcare (as of age 1.5) but when ensuring a municipal 
childcare place in a private childcare institution the  attendance fee may not exceed that of a 
municipal  childcare  institution.  Meals:  low-income  families  can  apply  for  an  exemption  at 
100%, based on the same terms as for ECEC participation. Transport is free for all pupils. 

Addressing the non-financial barriers 

There are geographical disparities in access. Salary top-ups for teachers are provided in regions 
where shortages are most acute. Availability for children with disabilities can be problematic. 
Estonia is implementing an action plan (2025–2027) to enhance the value and attractiveness of 
education and youth work professions—supported by ESF+ funding, start-up grants for teachers 
and  specialists,  and  new  qualification  requirements  to  improve  professional  quality  and 
recognition. There is a legal entitlement to ECEC from an early age, typically from around 18 
months. 

Measures to support inclusive education and avoid segregated classes  

According to Early Childhood Education Act (in force as of 1 Sept 2025) teaching and education 
in a childcare institution should be adapted to individual needs of each child. Where necessary, 
a child is provided with a special education teacher, a speech therapist or other support. There 
are no special groups in childcare. Families with children with SEN report difficulties accessing 
suitable  placements.  EE  is  reorganizing  its  education,  merging  SEN  facilities  to  redirect 
resources toward support staff and improved learning conditions.  The situation is improving, 
there are still struggles with resources, workforce, and regional inequality. 2025–2029 action 
plan  was  adopted  to  value  education  and  youth  sector  professionals  and  increase  the 
attractiveness of these professions. 

Free and effective access to ECEC, age 3-school 

Addressing the financial barriers  

Same analysis as for 0-3 age group. 

Addressing the non-financial barriers  

Same analysis as for 0-3 age group. 

Measures to support inclusive education and avoid segregated classes  

Same analysis as for 0-3 age group. 

130 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Free and effective access to education 

Measures to prevent and reduce early school leaving, incl. personalised guidance 

The action plan lists measures to reduce dropout, including optimization of the school network, 
improved  access  to  support  services,  and  inclusion  in  mainstream  schools.  From  September 
2025,  the  learning  obligation  was  extended  to  the  age  of  18  with  the  objective  to  support 
students  in  continuing  their  education  after  basic  school  and  to  reduce  dropout  rates.  The 
incidence  of  early  leaving  from  education  and  training  reached  in  2024  11.0%  -  above  EU 
average (9.3%) and highest value since 2019. 

Measures to support inclusive education and avoid segregated classes  

The action plan mentions study counselling, EE language support, reorganizing support schools 
to improve services. From  2024, € 12.1 m will support inclusive learning environments until 
2027. Data sharing helps local authorities reach families in need. To ensure a new generation 
of teachers and support specialists, the state, in cooperation with universities, has increased the 
number of admissions to teacher training and support specialist programs. Special scholarships 
are offered to help reach graduation and begin professional careers.  

Provision of free school materials (incl. digital equipment)  

Textbooks  and  other  educational  literature  are  provided  free  for  primary  students.  Basic 
materials and school uniforms must be purchased at own expense. IT equipment is free to use 
in schools and libraries, with additional support through the "A computer for every schoolchild". 
Universal family benefits and local support schemes help cover school costs. 

Free transport 

Public transportation is free for all pupils. Transportation to some schools is also provided with 
special school buses, which students can ride for free. 

Free healthy meal each school day 

ECEC  

Access to free meals in ECEC depends on the municipality. Some fully cover meal costs, others 
partially, while in some parents pay in full. Reimbursements vary by municipality, often based 
on  household  income  or  number  of  children.  Low-income  families  can  apply  for  a  100% 
exemption  from  meal  fees,  using  the  same  eligibility  criteria  applied  for  participation  fee 
exemption 

Primary schools  

School meals for grades 1–12 are mostly funded by national subsidies, with local governments 
covering any remaining cost, so most students receive a free hot lunch daily. Some schools also 
offer free breakfast and afternoon snacks for those in need. Where parents must pay a small fee, 
full compensation can usually be applied for, ensuring low-income students have access to free 
school meals. 

Secondary schools  

School meals for grades 1–12 are mostly funded by national subsidies, with local governments 
covering any remaining cost, so most students receive a free hot lunch daily. Some schools also 
offer free breakfast and afternoon snacks for those in need. Where parents must pay a small fee, 
full compensation can usually be applied for, ensuring low-income students have access to free 
school meals. 

131 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Free and effective access to school-based activities 

Equal and inclusive access to school-based activities, including participation in school trips and 
sport, leisure and culture 

In  2022,  the  state  allocated  € 10.25 m  to  support  hobby  education  for  youth  (ages  7–19)  in 
culture, sports, and STEM. An extra € 1 m funded the  Culture Backpack Initiative, enabling 
access to cultural events via schools. In 2023, support was introduced for youth at risk (ages 
10–18) to reduce exclusion through sports. However, access to free school-based activities is 
not guaranteed, and availability in rural areas is low. New guidance was issued to clarify that 
activities forming part of the compulsory curriculum must be free of charge for students and the 
cost is to be covered by the schools (incl. theatre, museums, cultural institutions). Some schools 
report this as significant raising costs for schools. 

Framework for cooperation to provide after school care and opportunities to participate in sport, 
leisure and culture 

Legislation establishes a framework for inclusive education and multi-sectoral cooperation. The 
new  Preschool  Education  Act  requires  local  governments  to  ensure  access  to  childcare  and 
coordinating efforts between child protection workers and support specialists. Various projects, 
some targeted at teachers, are mentioned in the progress report. The action plan mentions that 
31% of children could not attend one or more of the desired hobby groups for financial reasons. 

Free and effective access to healthcare 

Measures to facilitate early detection and treatment of diseases and developmental problems? 

Children’s health monitoring is free until the first year of secondary school, supported by a new 
guide and checklist. Home visits by GP and family nurses are free of charge for children up to 
2 y old. Dental care is free for all children up to age of 19. Integrated social and healthcare 
services provide comprehensive and prevention-focused assistance. Still, shortages of medical 
staff and some schools not having signed contracts with medical services for health screening 
hinder service provision. There is a positive trend on decreased emigration among healthcare 
workers due to raising wages. Still, the share of AROPE children under 16 who have unmet 
needs for medical examination or treatment increased from 2.4% in 2021 to 7.5% in 2024. 

Childhood vaccines recommended by the WHO 

All  children  have  free  access  to  vaccinations  in  the  national  immunization  schedule. 
Vaccination  coverage  has  declined  in  the  past  decade,  but  in  2024  the  trend  stabilized. 
Vaccination  rates  (for  polio,  Haemophilus  influenzae  type  B,  Diphtheria,  Tetanus,  and 
Pertussis, Rubella and Hepatitis B) are around 83%, below the WHO recommended level of 
95%. Rotavirus vaccine rates are at 75%. HPV vaccination rates have increased annually and 
are at 63% for 14-year old girls. Legislative steps are in progress to improve vaccination rates. 

Measures to facilitate early detection and treatment of mental health problems 

In 2024 Estonia had a limited number of. Early detection is strengthened through the Mental 
Health Department and the Mental Health Action Plan 2023–2026, incl. a child mental health 
study  and  cross-sector  proposals.  Access  is  expanding:  more  municipal  funding,  clinical 
psychologists  as  health  professionals,  psychologist-counsellors  in  GP  centres  from  2025, 
stepped-care pilots, school interventions and youth helpline and counselling. Youth Aware of 
Mental Health programme preventing suicides and supporting the mental health of children and 
young people is implemented in schools. New study on mental health is in preparation. 

132 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Free prescription medicines 

90 % reimbursement is applied to all children aged 4–16. For children under 4 years of age, the 
listed  medicines  are  reimbursed  at  100  %.  With  amendments  to  the  Health  Insurance  Act 
(entering into force from 1.02.2027), the medicines in the regulation will be available with a 
90% reimbursement for all children aged 4–18 (inclusive), regardless of whether they have an 
officially determined severity of disability or reduced work ability. 

Provision of targeted rehabilitation and habilitation services for children with disabilities  

Children with an assessed disability can receive social and medical rehabilitation, as well as 
individual services referred by a family doctor, school support services, or local authorities. A 
2023  reform  enabled  automatic  data  exchange  to  support  families  proactively.  A  combined 
nursing  and  care  service  for  children  with  high  care  needs  is  being  developed  with  ESF+ 
funding,  available  even  without  disability  status.  Reforms  aim  to  identify  needs  early  and 
simplify support. 

Health promotion and disease prevention programmes targeting children in need  

Family doctors are encouraged to participate in disease prevention and control of the spread of 
infectious diseases, to monitor patients with chronic diseases more effectively and to provide 
people with a larger-scale health care service. A guide for monitoring a healthy child has been 
updated with a checklist for monitoring the health of the child. Health promotion and prevention 
services are integrated into regular services. Spending on disease prevention is close to the EU 
average. 

Healthy nutrition 

Access to healthy nutrition outside of school  

The Ministry of Social Affairs provides  food aid, including state-purchased food (distributed 
via food cards) and donated food. Recipients are identified through applications, subsistence 
benefits, or local governments. Donated aid is available 1–4 times per month. Donated food aid 
package must weigh at least 7 kg/ person and include food items from at least three different 
categories  so  that  recipients  are  able  to  prepare  a  nutritionally  adequate  meal.  Some  local 
authorities also offer meals for children in need, including hot meals during school holidays. 

Limited advertisement and availability of unhealthy food  

The  Advertising,  Consumer  Protection,  and  Media  Service  acts  ban  ads  in  early  education, 
schools,  and vocational  settings.  Key  restrictions  prohibit ads  for,  or  targeting  children with 
unhealthy food, alcohol, tobacco. Guidelines cover responsible marketing to children. Updated 
nutrition  and  movement  recommendations  aim  to  reduce  salt,  sugar,  and  saturated  fats.  The 
Health  Development  Institute  runs  campaigns,  trainings,  and  publications.  The  pilot  project 
Seikluste Laegas promotes healthy habits for 4–7-year-olds, involving parents; evaluations are 
ongoing. 

Combatting homelessness  

Provision  of  adequate  accommodation,  prompt  transfer  from  temporary  accommodation  to 
permanent housing, and relevant social and advisory services 

Local authorities in Estonia must provide housing for those unable to afford it, but as funding 
is local, provision varies. There is no information on the timeframe for adequate housing or on 
social/advisory services. Homelessness is very low (0.8% in 2021), with no homeless children 
or families, so prevention is prioritized. Urgent shelter is provided immediately, while long-
term housing decisions take up to 10 days. Local municipalities cover 89% of shelter costs, 
ensuring broad accessibility.  

133 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Measures to prevent the risk of homelessness among families with children 

Housing support is offered via subsistence benefits, municipal housing, and Kredex schemes 
for low-income  and young families. In 2023, 27.4% of children AROPE  faced housing cost 
overburden  (EU  avg.  22.6%).  Additional  supports  include  home  aid  for  large  families, 
counselling, food aid, and personal assistance. A Ministry of Climate study proposes a four-
pillar policy to improve housing affordability, quality, and reduce pressure on social housing. 
The Ministry of Climate and the EIB launched an advisory programme to develop a financing 
solution for affordable rental housing outside three major counties. 

Effective access to adequate housing 

Measures to address energy poverty of families with children 

Energy  costs  are  mitigated  through  subsidies  and  price  compensations.  In  2023,  12.3%  of 
children  AROPE  lived  in  homes  unable  to  stay  warm  (EU  avg.  25.4%).  The  Energy  Sector 
Organization  Act  defines  “vulnerable”  and  “energy-poor”  consumers  and  grants  subsistence 
benefits covering dwelling and energy costs. Kredex offers heater upgrade grants, prioritizing 
applicants with the lowest taxable income. 

Social housing for families with children  

Low-income households with children are not prioritised in access to social housing. The social 
sector  is  below  2%  of  total  housing  stock.  Access  and  quality  vary  by  municipality.  The 
Constitution ensures special care for large families and persons with disabilities. By end-2024, 
there were 8,490 dwellings in housing services, with € 18.2 m spent on housing. 

Good alternative care standards 

Measures  to  ensure  that  the  best  interests  of  the  child  as  well  as  their  overall  situation  and 
individual needs are considered when placing them in alternative care 

The  Child  Protection  and  Social  Welfare  acts  ensure  quality,  focus  on  children  and  state 
responsibility  for  alternative  care.  Policy  reforms  promote  family-based  care,  reduce 
institutionalization,  and  strengthen foster  support.  As  of  2026  a  flexible  support  system  was 
created for families providing alternative care, where both the child and other members of the 
family  receive  services  according  to  their  needs.  Failed  placements  are  analysed  to  improve 
support. Children’s voices are central in all decisions and monitored through regular follow-
ups. 

Measures to ensure the transition of children from institutional care to quality family-based care 

Family based care is prioritized with € 1.2 m In 2024, and € 1.5 m in 2025 aiming to reduce the 
share  of  children  in  residential  care  to  30%.  According  to  the  EU  monitoring  framework,  the 
respective share increased since 2023 from 33.7% to 39.2%. Foster care plans are individualized, 
coordinated,  and  ensure  ongoing  specialist  support  and  child  participation.  The  foster  families 
providing  emergency  and  special  care  are  regulated  and  must  use  certain  support  services. 
Awareness campaigns and media projects raised visibility, a survey will refine outreach.  

Measures to support independent living and social integration of children leaving  alternative 
care 

Local  governments  must  provide  housing,  reimburse  housing  costs,  and  offer  needs-based 
support, with costs reimbursed by the state. Quality and access vary by municipality. Support 
may continue up to age 25 if conditions (e.g. education, health) are met. Young people leaving 
care  receive  aftercare  services  for  education  and  independent  living,  including  a  support 
specialist, housing, at least € 240/month financial aid, and additional individualized assistance 
based on assessed needs. 

134 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Outreach and awareness raising 

Section  5  of  the  action  plan  focuses  on  communication  and  awareness  raising,  though  is 
formulated in rather general terms. Awareness raising is also mentioned as part of some of the 
measures.  Progress  report  mentions  as  part  of  stakeholder  feedback  that  it  is  important  to 
increase social awareness, as well as community assistance and support for children and families 
in the target group. 

Stakeholders’ involvement 

Ministries,  local  governments,  children's  and  families'  advocacy  organizations,  children  and 
young  people  were  involved  in  definition  of  target  groups,  barriers  and  possible  policy 
responses. A wide range of stakeholders were also consulted on the progress report. A working 
group  met  December  2025  to  discuss  establishment  of  a  national  cross-ministerial  youth 
council.with  the  aim of  involving young people  in policy making.  In  2026  an  initiative  was 
launched  to  involve  young  people  in  alternative  care  to  help  shape  the  services  and  raise 
awareness about the system. 

135 

 
 
 
 
 
 
 
 
IRELAND 

Identification of children in need  

The action plan discusses the socio-demographic correlates of child poverty or social exclusion 
and notes that non-Irish nationality, living outside Dublin, and being a girl increase the risk of 
poverty or social exclusion. While policy measures target specific groups, action plan does not 
specify  which  children  are  covered  by  the  ECG  measures.  The  progress  report  offers  more 
detailed data and insights on disadvantages faced by particular groups. 

Free and effective access to early childhood education and care (ECEC), age 0-3 

Addressing the financial barriers 

A fee freeze, fee capping and National Childcare Scheme (NCS) subsidies have reduced out-
of-pocket costs for families by 38% since 2023. The NCS offers higher subsidies to families on 
low-income through an income-assessment process - from Sept. 2026 income thresholds will 
be enhanced. Yet, costs can still be a barrier to childcare. Bia Blasta’ the pre-school Nutrition 
Programme provides daily free meals for pre-school in services in circumstances of identified 
concentrated disadvantage. The 2026 budget extends the means-tested Back to School Clothing 
and Footwear Allowance (EUR  160) to children aged 2 and 3. 

Addressing the non-financial barriers 

A 2021 OECD report found the National Childcare Scheme complex. Low pay makes it hard 
to recruit and retain ECEC staff. To address this challenge, increases to minimum rates of pay 
for ECEC educators have been agreed with unions. A new Employment Regulation Order for 
Early  Years  Educators  and  School-Age  Practitioners,  effective  from  October  13,  2025, 
introduced increased minimum pay rates and improved conditions for staff across the sector.  
This  new  order  replaces  and  builds  upon  the  previous  2024  order.  The  action  plan  outlines 
measures  to  support  children  AROPE  and  reduce  early  disadvantage.  Yet,  availability  of 
services remains a challenge, demonstrated by the long waiting lists for childcare places (over 
40,000 children). 

Measures to support inclusive education and avoid segregated classes  

Equal Start provides flexible funding for additional staff, family liaison, and targeted supports 
for  services  operating  in  circumstances  of  disadvantage,  as  well  as  for  disadvantaged  and 
minority groups to support participation and full inclusion in mainstream ECEC. The Access 
and Inclusion Model (AIM) ensures that children with disabilities and additional needs can fully 
participate in preschool and is planned to be extended to the 0–3 age group. Yet, there is  no 
legal entitlement to an early-years place. Disadvantaged children have lower participation rates. 

Free and effective access to ECEC, age 3-school 

Addressing the financial barriers  

Pre-schooling, capped at 3  hours/day, is free for all children who have  turned 2 years and 8 
months. Parents may be charged for extra activities and longer hours. Equal Start programme 
helps disadvantaged families to fully participate in ECEC, while funding services to support the 
meaningful  participation  of  children  experiencing  disadvantage.  NCS  offers  universal  and 
income-based subsidies for extra hours of care, from Sept 2026 these income thresholds will be 
enhanced, allowing families of more than 47,000 children to receive a higher subsidy. Under 
Budget  2026,  the  means-tested  Back  to  School  Clothing  and  Footwear  Allowance  rate  of 
EUR160 is being extended to children of ECEC age (aged 3).   

136 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Addressing the non-financial barriers  

Equal Start (launched 2024) delivers universal and targeted supports to address non-financial 
barriers.  These  include  funding  for  additional  staffing,  family  liaison  supports  to  encourage 
participation  among  disadvantaged  cohorts,  and  dedicated  Traveller  and  Roma  inclusion 
programmes.  Significant  progress  has  been  made  on  the  delivery  of  targeted  initiatives;  full 
implementation  is  planned  by  end  2028.The  Nurturing  Skills  plan  enhances  recruitment, 
retention, and training of early years educators. Pay improvements, e.g. through Core Funding, 
which supports workforce stability and quality. 

Measures to support inclusive education and avoid segregated classes  

The action plan notes that Early Learning and Care policy emphasises inclusion for all children, 
including those  from minority groups. The AIM  supports children with disabilities to attend 
mainstream  preschool  settings  with  their  peers  (from  the  age  of  2  years  and  8  months). 
According  to  2025  Eurydice  report,  children  with  special  educational  needs  or  disabilities 
benefit from assignment of specialised staff and reduced group sizes. The primary focus of AIM 
is to improve child-staff ratios in mainstream preschool sessions, which may include financial 
supports  for  additional  staff,  and  to  provide  in  depth  mentoring  and  training  for  early  years 
educators.  Additional  funding  for  improving  physical  accessibility  is  available,  as  well  as 
funding  for  specialised  equipment.  Work  is  underway  on  a  joint  national  transitions  policy 
outlining  requirements  for  ECEC  and  schools  to  ensure  a  supported  entry  through  all  early 
education and beyond. 

Free and effective access to education 

Measures to prevent and reduce early school leaving, incl. personalised guidance 

The DEIS programme is Ireland’s main policy to address educational disadvantage, offering 
extra teaching and resources to targeted schools. The School Completion Programme and the 
Home  School  Community  Liaison  Scheme  are  key  supports  of  DEIS,  and  provide  a  robust 
continuum of support and interventions, working alongside the statutory Educational Welfare 
Service, under Tusla Education Support Service, TESS, to tackle educational disadvantage and 
early  school  leaving.  In  addition,  initiatives  such  as,  Youthreach,  Vocational  Training 
Opportunities Scheme, Back to Education Initiative support early school leavers. Ireland’s early 
school leaving rate is 4.0%, well below the EU average of 9.5%. 

Measures to support inclusive education and avoid segregated classes  

More  than  € 3 bn  will  be  spent  on  SEN  in  2026.  Migrant  and  Traveller  children  attend 
mainstream  schools  and  receive  support  based  on  need.  There  has  been  an  increase  in  the 
number of special schools and classes arising from increases in rates of children diagnosed as 
autistic.  IE’s  system  promotes  inclusive  education  requiring  schools  to  undertake  an  annual 
review of pupil placement in special classes to identify those that can be moved to mainstream 
education. IE works with FI and with the European Agency for Special Needs and Inclusive 
Education to develop a Roadmap for Inclusion. Challenges remain, i.a high concentration of 
Traveller students in schools designated as disadvantaged, teacher training. 

Provision of free school materials (incl. digital equipment)  

Free books and classroom resources are provided for all students in primary special and post-
primary  schools  in  the  Free  Education  Scheme  for  the  2025/26  school  year.  The  Assistive 
Technology  Scheme  supplements  funding  for  digital  technology  and  equipment  in  schools. 
There are several subsidies, grants and one-off schemes for low-income families that are aimed 
at easing costs for low-income children. Still  a number of costs relating to school uniforms, 
school materials and contributions can constitute a burden for the low-income parents. Schools 
receive an ICT Grant, which may be used for ICT, including devices for learners (shared or 
loaned). 

137 

 
 
 
 
 
 
 
 
 
 
 
 
 
Free transport 

The School Transport Scheme provides transport for 180,000 children and young people for the 
2025/2026  school  year.    It  is  heavily  subsidised  and  for  the  current  school  year,  ticket  fees 
remain low. Those with a valid medical card and children availing of SEN transport did not pay 
a  ticket  fee  for  2025/2026.  Eligible  children  with  additional  needs  are  provided  with  free 
transport to schools.  In areas without dedicated school transport, grants cover cost for eligible 
pupils. While widely compliant, costs can still affect children in need. 

Free healthy meal each school day 

ECEC  

All  ECEC  services  must  provide  snacks  and  meals  based  on  attendance  length,  funded  via 
parental  fees  and  the  National  Childcare  Scheme.  Full-day  children  receive  2  meals  and  2 
snacks; shorter 3-hour ECCE children usually bring food from home. Nutrition standards apply 
to all services. From September 2025, the Equal Start programme has been funding a shared 
learning-based nutritious meal for 3-hour ECCE children in services where there is concentrated 
disadvantage, reaching 10,000 children to date through the Bia Blasta (tasty food) programme. 

Primary schools  

As of September 2025, Hot School Meals Programme was extended to all primary schools. 

Secondary schools  

Secondary  schools  are  currently  not  eligible  for  Hot  School  Meals  programme.  Delivering 
Equality of Opportunity in Schools (DEIS) designed secondary schools are eligible for funding 
in respect of certain meal clubs under the School Meals Programme. There is a commitment in 
the  Programme  for  Government  to  expand  the  Hot  School  Meals  scheme  to  all  secondary 
schools during the lifetime of the current government. 

Free and effective access to school-based activities 

Equal and inclusive access to school-based activities, including participation in school trips and 
sport, leisure and culture 

Active School Flag promotes a whole-school approach to physical activity and health. Since 
2025, a Post-Primary ASF runs in selected schools. Creative Youth (CY) in-school initiatives 
prioritise  DEIS  and  under-represented  schools.  A  new  2025  data  tool  tracks  participation  to 
identify gaps and areas of greatest need. Depending on school, parents are asked for additional 
money to cover costs of school trips or activities, which can pose a financial burden in case of 
families which do not want their children to miss out.  2024 data show a low rate of children 
AROPE unable to participate in school trips and school events due to financial reasons (5.5%). 

Framework for cooperation to provide after school care and opportunities to participate in sport, 
leisure and culture 

There  is  insufficient  information  on  this  in  the  action  plan  or  report.  Local  Creative  Youth 
Partnerships ensure that children and young people have opportunities to express themselves 
creatively in out-of-school, community settings. They are networks which enable information 
sharing and collaboration with the local host ETB, local authorities, the non-formal education 
sector,  family  support  services  and  youth  services.  They  work  locally  to  reach  children  and 
young people who are at a disadvantage from accessing creative opportunities. 

138 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Free and effective access to healthcare 

Measures to facilitate early detection and treatment of diseases and developmental problems? 

All children receive a vision screen while in national school. Since the means-test threshold for 
free medical care hasn’t been updated since 2005, many families who don’t meet the outdated 
criteria struggle with healthcare costs. All children under 8 years old qualify for free General 
Practitioner (GP) care, regardless of family income. In 2023 eligibility also extended to those 
earning up to the median household income for free GP care. Hospital in-patient charges have 
been abolished. 

Childhood vaccines recommended by the WHO 

All vaccines administered as part of the National Immunisation Programme are free of charge. 
Vaccination rates are currently below the target rate of 95%. Increasing uptake in the childhood 
vaccination programme is a priority and specific actions are underway to address this falling 
uptake. 

Measures to facilitate early detection and treatment of mental health problems 

Children with mental healthcare needs continue to face challenges in accessing counselling and 
quality support. Work has started on addressing mental health service waiting lists. To address 
this, the government will provide record funding of nearly € 1.6 bn for mental health in 2026. 
EU Monitoring Framework indicates high share of children with low family affluence who felt 
low more than once a week. 

Free prescription medicines 

Approved  prescribed  medicines  are  either  free  or  subsidised  for  all  residents  of  Ireland, 
including  children.  For  households  with  a  medical  card,  approved  prescribed  medicines, 
including those prescribed for children in these households are free, subject to payment of a 
small prescription charge. EU Monitoring framework indicated ‘limited’ for this category. 

Provision of targeted rehabilitation and habilitation services for children with disabilities  

The action plan and progress report provide little information on this aspect of ECG. Improved 
access to services for children with disabilities and developmental delays is taking place with 
the ongoing roll out of Progressing Disability Services for Children and Young People. 

Health promotion and disease prevention programmes targeting children in need  

Healthy Ireland is a governmental health promotion initiative. Its Framework 2019-2025 and 
Strategic Action Plan include policies, action plans, strategies, programmes and interventions 
on  the  promotion  of  physical  activity,  addressing  obesity,  tobacco  and  alcohol,  and  sexual 
health. Many of these policies contain specific recommendations for children and young people. 
In Feb 2026, the Irish Department of Health launched a public consultation to help develop the 
next Healthy Ireland framework beyond 2025. There is no information/analysis on the number 
of beneficiaries and/or adequacy of the measures proposed. 

Healthy nutrition 

Access to healthy nutrition outside of school  

There are no government food subsidies or vouchers for low-income families. Efforts focus on 
supporting parents through public health campaigns and nutrition programmes. In June 2024 an 
Action  Plan  aiming  to  address  Food  Poverty  in  Ireland  was  presented.  In  2025,  a  Holiday 
Hunger pilot supported up to 40,000 children at the cost of € 1.3 m. Under Sláintecare Healthy 
Communities, Healthy Food Made Easy Programme is delivered to reduce food poverty. 

139 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Limited advertisement and availability of unhealthy food  

High-sugar,  salt,  and  fat  food,  and  junk  food  advertising  restrictions  for  children  are  being 
developed;  healthy  eating  is  promoted  through  school  subjects.  A  Department  of  Health 
dietitian funded by the Department of Social Protection was appointed for the School Meals 
Programme in September 2025. She is finalising an interim review of the nutritional guidelines 
for the programme and the compliance of the main suppliers with the current guidelines. 

Combatting homelessness  

Provision  of  adequate  accommodation,  prompt  transfer  from  temporary  accommodation  to 
permanent housing, and relevant social and advisory services 

The Irish Government aims to ensure access to affordable, secure, high-quality housing. Over 
€ 9 bn in capital funding will be available for housing in 2026. The new housing plan Delivering 
Homes, Building Communities focuses on delivering 300,000 new homes and supporting home 
ownership.  Increased  social  housing  investment  will  boost  allocations,  a  key  route  out  of 
homelessness. Budget 2026 provides € 513.5m for homeless services, € 50 m for emergency 
accommodation, and € 100 m for property acquisition to tackle long-term homelessness. Due 
to  housing  supply  shortages,  there  is  insufficient  temporary  and  permanent  housing  for 
homeless persons. 

Measures to prevent the risk of homelessness among families with children 

The  new  housing  plan  sets  out  a  number  of  measures  to  address  family  homelessness.  This 
includes  the  development  of  a  Child  and  Family  Homelessness  Action;  dedicated  capital 
funding  of  € 100 m  to  support  local  authorities  to  acquire  properties  to  tackle  long-term 
homelessness;  and  the  development  of  a  whole-of-Government  Homelessness  Prevention 
Framework. Since 2021, child and family homelessness has doubled, especially among single 
parents,  Travellers,  and  people  with  disabilities.  The  Department  of  Housing,  Local 
Government and Heritage works closely with local authorities to prioritise preventions to and 
exits from emergency accommodation. 

Effective access to adequate housing 

Measures to address energy poverty of families with children 

Measures on energy poverty are not discussed in detail in the action plan nor progress report. 
In 2024, the share of children AROPE living in  households unable to keep home adequately 
warm was 22.7%, slightly below EU average of 24%. 

Social housing for families with children  

In 2024, social housing waiting list grew by about 1,000 households to ca 60,000. Priority for 
families differs by local authority, and many face long waits. Around 92,000 children (6.6%) 
lack social housing. The action plan refers to building new social, cost-rental and affordable 
homes and updated research. 

140 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Good alternative care standards 

Measures  to  ensure  that  the  best  interests  of  the  child  as  well  as  their  overall  situation  and 
individual needs are considered when placing them in alternative care 

There is no information on this in the action plan nor progress report. The best interests of the 
child in alternative care are ensured under Article 42A of the Constitution and the Child Care 
Act  1991,  which  requires  courts  to  consider  each  child’s  individual  needs,  and  their  best 
interests  as  paramount.  Guardians  ad  Litem  (GALs)  represent  children’s  voices  in  court; 
reforms under the 2022 Act will establish a new national GAL service. The Child and Family 
Agency  has  a  statutory  to  prioritise  children’s  welfare  and  regard  their  best  interests  as 
paramount,  including  when  placing  them  in  care.  Care  placements  must  meet  national 
Regulations and Standards, which explicitly require the placement to consider the nature of the 
child’s individual needs. 

Measures to ensure the transition of children from institutional care to quality family-based care 

2025 indicates a low share of children in residential care out of the children in alternative care 
(8.8 %),. The progress report describes a research project ‘Care Experiences: Journeys through 
the Irish care system’, which will inform the development and improvement of future policies 
and services in the area. The National Policy Framework on Alternative Care is planned for 
mid-2026. Challenges persist such as staff and capacity constraints. 

Measures to support independent living and social integration of children leaving alternative 
care 

There is no information in the action plan nor progress report. The Child Care Act of 1991 and 
Tusla policies provide statutory aftercare supports for young people leaving care. Preparation 
begins at 16, including budgeting, savings, and life-skills training. At 18, eligible care leavers 
receive  tailored  aftercare  services,  financial  and  educational  supports  (aftercare  allowance, 
grants, SUSI, HEAR), and access to aftercare workers and drop-in services. Tusla may fund 
education until age 23. The Capital Assistance Scheme for Care Leavers provides long-term 
social housing for those at high risk of homelessness. Housing Authorities are directed to use 
all support options to support accommodation of young people leaving care. 

Outreach and awareness raising 

Action plan outlines stakeholder engagement and social campaigns to raise awareness of ECG 
services, though update is missing on this in the progress report. The report notes a national 
mapping of Tusla parenting support services to improve access for parents and practitioners. 
Different outreach initiatives are part of the described measures. Outreach can be considered 
inconsistent and, in many areas, insufficient to meet the high demand. 

Stakeholders’ involvement 

Government consultations helped define priorities for new policy framework for children and 
youth. An online consultation and input from children, including through the UN CRC process, 
informed the ECG action plan. Stakeholder submissions shaped the plan, and the progress report 
highlights their role in monitoring and evaluation. It is unclear how the local level has been 
consulted and how the progress report has been put for consultation. 

141 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
GREECE 

Identification of children in need  

The ECG action plan reports the size  of  groups of children in need who experience specific 
disadvantages (e.g. Roma children). The ECG action plan identifies disadvantages hindering 
groups  of  children  in  need’s  access  to  the  services  covered  by  the  ECG  (e.g.  remoteness, 
stigmatisation). However, updates of the size of some groups of children in need and their access 
to these services are missing in the progress report. 

Free and effective access to early childhood education and care (ECEC), age 0-3 

Addressing the financial barriers 

Tuition fees are calibrated to family size and income, with some fee exemptions the scope of 
which varies across municipalities. The 2026 progress report mentions provision of some free 
food for children in ECEC, while acknowledging shortage in provision of free transportation 
and educational materials. 

Addressing the non-financial barriers 

Target to build 20,000 new pre-school care places, but whether this will be enough to meet the 
unmet demand remains unclear. Challenges related to ECEC staff shortages reported, yet some 
professional  development  programs  planned.  Planned  efforts  to  improve  transportation 
networks and set up decentralised centres. More substantial results (from the planned measures) 
needed for wider compliance. 

Measures to support inclusive education and avoid segregated classes  

In  line  with  the  National  Strategy  for  the  Rights  of  Persons  with  Disabilities,  an  Early 
Intervention program (until 2030) for children aged 0 to 6 years, who have disabilities has been 
included  in  the  Greek  RRP  (funding  of  ca.  € 35 m).  Services  are  to  be  provided  by  trained 
multidisciplinary teams within child's environment. The program plans to offer service vouchers 
to  at  least  2,500  children.  Beyond  this,  there  is  little  evidence  of  policies  for  disadvantaged 
children. 

Free and effective access to ECEC, age 3-school 

Addressing the financial barriers  

Legal entitlement for all children from age 4, implying free attendance in public units. Meals 
are partially covered but no clear evidence of free transportation and educational materials for 
children in need mentioned. 

Addressing the non-financial barriers  

Same analysis as for the 0-3 age group. 

Measures to support inclusive education and avoid segregated classes  

Besides  some  planned  projects  to  design  more  inclusive  ECEC  curricula  and  vouchers 
distribution to promote children with disabilities’ participation, there is little evidence of large-
scale policies aimed to adapt facilities and educational materials for disadvantaged children and 
to ensure they are accompanied by qualified teachers and staffs. Apparent shortage of qualified 
staff. No language support for those speaking another language. 

142 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Free and effective access to education 

Measures to prevent and reduce early school leaving, incl. personalised guidance 

The incidence of early leaving from education or training has decreased in the past years and, 
at 3.0% in 2025, is well below the EU average of 9.3%. Among measures implemented are the 
establishment  of  Educational Priority  Zones  and  Reception  Classes,  the  placement  of  Social 
Workers in primary and secondary school units, and the establishment of Reception Structures 
for the Education of Refugee Children. 

Measures to support inclusive education and avoid segregated classes  

Some  measures  taken  (e.g.  Support  to  Primary  and  Secondary  Education  Schools  by 
psychologists  and  social  workers  targeting  c.a.  13,000  schools,  efforts  to  combat  school 
violence and bullying through a dedicated website, to  promote school participation of Roma 
children  and  children  with  disabilities).  But  the  gap  in  the  incidence  of  underachievement 
between disadvantaged and advantaged children is above the EU average in Greece. 

Provision of free school materials (incl. digital equipment)  

School textbooks are provided free of charge. More than 600,000 vouchers distributed to help 
low-income children access digital devices. However, there is no clear evidence of large-scale 
policies  ensuring  children  in  need’s  free  access  to  other  school  materials,  besides  specific 
support for pupils with disabilities. 

Free transport 

Free transport for children living far from their school (1.2 km from primary school and 2.5 km 
from secondary school according to the progress report) – or alternatively a monthly allowance 
is distributed, yet some lack of public transportation reported in mountainous, hardly accessible 
or island areas. 

Free healthy meal each school day 

ECEC  

No evidence of free provision of free healthy meal each school day in ECEC 

Primary schools  

In the 2025/2026 school year, 1,918 schools selected on the basis of socioeconomic criteria took 
part in the Greek school meal scheme and 231,062 meals were delivered each school day for 
free.  Assuming  each  child  receives  one  meal  per  day,  this  last  figure  indicates  that  not  all 
children AROPE are covered by this scheme. 

Secondary schools  

Same analysis as for primary schools. 

Free and effective access to school-based activities 

Equal and inclusive access to school-based activities, including participation in school trips and 
sport, leisure and culture 

The Greek rates of children AROPE  lacking access to regular leisure and school-based (e.g. 
school trips) activities are above the EU averages. Yet several measures are reported to improve 
their access (e.g. free theatre tickets, support to access museums, leisure camps, subsidy for 
books, including specific support for children with disabilities). 

143 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Framework for cooperation to provide after school care and opportunities to participate in sport, 
leisure and culture 

Creative Activity Centres are being established for  cooperation between cultural institutions, 
schools, municipalities, and social actors, provision of after-school care, and specific assistance 
for  children  with  disabilities.  The  centres  offer  activities  to  children  aged  5  to  12  years  old 
beyond school hours with pedagogical practices to support their physical, mental, and social 
development. More information on number of children AROPE benefiting. 

Free and effective access to healthcare 

Measures to facilitate early detection and treatment of diseases and developmental problems? 

Most  post-natal  screenings  are  available  for  free,  and  GPs  may  prescribe  preventive  tests 
administered  free  of  charge.  In  addition,  efforts  to  set  up  frameworks  for  examination  of 
children at specific school ages are  made, including teams of doctors visiting schools. Third 
country  nationals  also  have  to  undergo  a  health  screening.  Yet  there  is  no  clear  quantitative 
evidence that free screenings are widely available until the age of 18 years. 

Childhood vaccines recommended by the WHO 

Children in Greece have free access to vaccines included in the National Vaccination Program 
(e.g. polio, rubella, measles, mumps, varicella (chickenpox), meningococcal and pneumococcal 
infections, hepatitis A and B, HPV infections, influenza, coronavirus, and respiratory syncytial 
virus).  While  there  is  outreach  to  groups  experiencing  specific  disadvantages  such  as  Roma 
children, evidence suggests scope for progress in take-up rates. 

Measures to facilitate early detection and treatment of mental health problems 

Greece is developing community mental health centres in Athens and Thessaloniki, mobile units 
and  tele-psychiatry  to  reach  remote  areas  across  the  country,  focusing  on  children,  and 
availability  of  psychologists  and  social  workers  in  schools.  In  addition,  early  intervention  is 
conducted by psychosis units. Yet, Greece has among the highest share of children with low 
family affluence feeling low more than once a week. 

Free prescription medicines 

In Greece, disadvantaged groups, including low-income children, unaccompanied minors and 
children with disabilities over 67%, receive free prescription drugs. This is implemented, but 
there is some evidence of limitations due for instance to delays in reimbursements. 

Provision of targeted rehabilitation and habilitation services for children with disabilities  

National Organisation for the Provision of Health Services and Greece's "Reform of the early 
childhood  intervention  framework"  support  children  with  disabilities,  including  via  early 
intervention services tailored to individual needs, focusing on inclusive support. This involves 
multidisciplinary  teams.  However,  there  are  territorial  disparities  in  access  to  habilitation 
centres. Other barriers (e.g. physician shortages) also hinder service delivery. 

Health promotion and disease prevention programmes targeting children in need  

Various  health  promotion  programmes  are  implemented,  e.g.  "Spyros  Doxiadis"  targeting 
pupils from high-poverty areas with educational and awareness-raising activities. The National 
Vaccination Program and newborn screening promote disease prevention. A 'Dentist pass' for 
children aged 6-12 also supports preventive care. Yet, more information would be needed on 
the number of beneficiaries with low income to ascertain higher compliance. 

144 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Healthy nutrition 

Access to healthy nutrition outside of school  

Several actions are undertaken to promote access of healthy nutrition outside of school, e.g. 
through  a  network  of  social  grocery  stores,  a  national  program  against  childhood  obesity, 
reducing  risk  factors  and  socioeconomic  inequalities  and  a  preventive  approach  to  cancer 
through healthy  food.  Measures  also  aim  to  promote  breastfeeding.  Yet  there  is  evidence  of 
challenges faced by low-income households with children hindering their access. 

Limited advertisement and availability of unhealthy food  

Selling food high in fat, salt and sugar is restricted in school canteens. Besides the program 
against childhood obesity, there are projects which promote food literacy (e.g. Skills Labs). Yet 
the share of children with low family affluence obese is as high as EU average, suggesting scope 
for progress. 

Combatting homelessness  

Provision  of  adequate  accommodation,  prompt  transfer  from  temporary  accommodation  to 
permanent housing, and relevant social and advisory services 

In Greece, addressing homeless children's access to adequate accommodation involves several 
(small-scale)  initiatives.  The  "Housing  and  Work  for  the  Homeless"  program  for  instance 
provides homeless families with housing support and supportive services but requires expansion 
for broader impact. Specific support to Roma children and unaccompanied minors is also rolled 
out. 

Measures to prevent the risk of homelessness among families with children 

Measures to prevent homelessness among families with children include housing benefits and 
rent  subsidies  to  alleviate  financial  burdens.  These  focus  on  ensuring  stable  housing  and 
preventing eviction by supporting families at risk. However, the share of children AROPE living 
in household facing housing cost overburden is among the largest in the EU, which suggests 
scope for progress. 

Effective access to adequate housing 

Measures to address energy poverty of families with children 

Greece  addresses  energy  poverty  with  measures  like  social  tariff,  electricity  discounts,  and 
programmes  to  improve  housing  energy  efficiency.  However,  the  share  of  children  AROPE 
living in a household unable to keep their home adequately warm is among the highest in the 
EU, which suggests scope for progress. 

Social housing for families with children  

While social housing is underdeveloped in Greece, there are plans to increase the (social) 
housing stock through programmes like "Renovate-Rent" and the “Social Compensation” 
scheme. Families with children in need are prioritized with some local differences. 

145 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Good alternative care standards 

Measures  to  ensure  that  the  best  interests  of  the  child  as  well  as  their  overall  situation  and 
individual needs are considered when placing them in alternative care 

Greece aims to reduce to zero the number of children in institutional care by 2030, focusing on 
community-based  alternatives.  Support  for  biological  families,  transition  to  community 
services, and foster care development. Some evidence of care tailored to children needs, e.g. 
with individual family action plans, including mechanisms to ensure child’s voice is heard, and 
specific focus on unaccompanied minors. Yet not all children seem to be covered by such plans.   

Measures to ensure the transition of children from institutional care to quality family-based care 

The  action  plan  supports  deinstitutionalization  through  e.g.  training  of  social  workers, 
transformation of institutions, and creation of professional foster care system. Efforts focus on 
alternative living arrangements, and integration support. However, despite some improvement, 
the share of children in residential care out of the total number of children in alternative care is, 
according to the EU monitoring framework, 84.5% i.e. the highest in the EU and way below the 
zero target set for 2030. 

Measures to support  independent living and social integration of children leaving alternative 
care 

Greece supports children leaving alternative care through individual action plans and initiatives 
such  as  the  Semi-Independent  Living  programme  which  involves  counselling,  and  housing 
habitation  programmes  focused  on  young  people.  Yet  there  is  a  lack  of  evidence  to  assess 
whether these measures are sufficient to support independent living and social integration of 
children  leaving  alternative  care  (e.g.  more  information  on  integration  in  the  labour  market 
could be presented). 

Outreach and awareness raising 

The action plan features several communication actions (e.g. setting up of telephone helplines 
and digital applications), alongside more active outreach (e.g. health mobile units). The progress 
reports feature updates as regards their implementation. Yet, no estimate of non-take-up rates is 
provided, not allowing to assess whether the scope of these measures is large enough to be fully 
compliant. 

Stakeholders’ involvement 

Ministries, state agencies, local authorities, NGOs and children for were consulted in the process 
of preparation of the action plan and the progress reports. 

146 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
SPAIN 

Identification of children in need  

The action plan identifies children in need and reports the size of groups of children in need 
experiencing specific disadvantages (however, the number of Roma children is just estimated 
as Spain does not collect respective data). The updates on the size of most groups of children in 
need and their access to key services are not included in the progress report. 

Free and effective access to early childhood education and care (ECEC), age 0-3 

Addressing the financial barriers 

In few regions (e.g. Madrid), tuition fees have been lifted. At the national level, a dedicated 
programme (2026–2028) aims to improve enrolment rates in early childhood education (ages 
0–3) through financial support for families. Yet there is no mention of free provision of meals 
and transportation. Coupled with gap in ECEC participation rate  between children at risk of 
poverty or social exclusion and their better-off peers, this suggests scope for progress. 

Addressing the non-financial barriers 

Target to construct 65,000 new childcare places (including 45,000 places by June 2026) with a 
focus on disadvantaged territories and supported with EU-funding. Whether this will be enough 
to meet unmet demand, particularly in urban centres, remains unclear. ECEC staff shortages to 
be addressed through some professional development and training programs. Hurdles in ECEC 
access due to geographic disparities reported (with long waiting lists and inadequate opening 
hours). 

Measures to support inclusive education and avoid segregated classes  

Besides commitments to inclusivity in ECEC (and school segregation prevention) and evidence 
of language support provided to those who speak a different language at home, no clear evidence 
of  other  large-scale  policies  aiming  to  adapt  facilities  and educational  materials  for  children 
with  disadvantaged  background  and  specific  needs  and  ensure  they  are  accompanied  by 
qualified teachers and staffs. 

Free and effective access to ECEC, age 3-school 

Addressing the financial barriers  

Spanish  legislation  establishes  the  free  provision  of  the  second  cycle  of  Early  Childhood 
Education, guaranteeing that every child over the  age of 3 has a legal right to a place. Only 
Basque region provides children in need with at least one healthy free meal each school day. 
Lack of information on transport suggests that financial barrier may hinder access. Some regions 
take actions to reduce cost of educational materials. Almost 100% participation  rate suggests 
wide compliance. 

Addressing the non-financial barriers  

Situation similar as for children below 3 years of age. However, almost 100% participation rate 
suggests wider compliance. 

Measures to support inclusive education and avoid segregated classes  

Besides broad commitments to inclusivity in ECEC and evidence of language support provided 
to those who speak a different language at home, no clear evidence of other large-scale policies 
already  implemented  to  adapt  facilities  and  educational  materials  for  children  with 
disadvantaged background and specific needs and ensure  they are accompanied by qualified 
teachers and staffs. Yet, a “Strategic Plan for Inclusive Education” is being developed. 

147 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Free and effective access to education 

Measures to prevent and reduce early school leaving, incl. personalised guidance 

Despite  some  decrease  recorded,  the  incidence  of  early  leaving  from  education  and  training 
remains in Spain above the EU average. Measures are taken to address the issue (e.g. PROA+, 
targeting  3,600  schools  and  colleges  to  provide  educational  support).  A  new  regulatory 
framework incorporated measures to prevent and reduce early school leaving. (e.g. competency-
based  approach  of  the  curricula,  flexibilization  of  educational  pathways,  and  personalized 
support). 

Measures to support inclusive education and avoid segregated classes  

The gap in rate of underachievement among disadvantaged and advantaged children is in Spain 
below  EU  average.  Some  measures  to  promote  inclusivity  in  education  and  address  school 
segregation  (e.g.  1,139  psycho-educational  service  units  providing  vulnerable  pupils  with 
tailored support, programmes to foster Roma children’s school attendance, support programmes 
to children with disability). 

Provision of free school materials (incl. digital equipment)  

Some  large-scale  policies  supporting  access  to  school  materials  reported  (e.g.  to  guarantee 
access to textbooks, and bridge digital divide through provision of computers). E.g. with the 
Programme  for  Digitalisation  of  the  Educational  Ecosystem,  more  than  165,000  classrooms 
have been equipped and 350,000 devices delivered to educational centres for loan to students 
in vulnerable situations. Yet regional disparities reported. 

Free transport 

Nation-wide  obligation  to  provide  free  school  transport  for  students  who  attend  school  in  a 
municipality other than that of their residence. Yet provision of school transport varies across 
regions.  Each  school  year  in Ceuta  and  Melilla,  there  is  a  call  to  fund  free  school  transport 
services for students with an official assessment of special educational needs who are enrolled 
in public Early Childhood Education, Primary Education, or Secondary Education centres. 

Free healthy meal each school day 

ECEC  

At State level, the RD 315/2025 of “Law on food safety and nutrition” promotes healthy and 
sustainable eating in schools. It does not regulate the cost of meals for which there is disparity 
between regions. In the cities of Ceuta and Melilla, the Ministry of Education publishes each 
school year, a call aimed at funding school meal services (free of charge for the ones most in 
need). Among other groups, this call includes students of Early Childhood Education (ages 3–
6). 

Primary schools  

At  State  level,  a  regulation  promotes  healthy  and  sustainable  eating  in  schools.  Many 
Autonomous  Communities  (e.g.  Catalonia,  Valencian  community,  Extremadura)  focus  their 
efforts on ensuring that all pupils, regardless of their socioeconomic situation, have effective 
access to a healthy meal per school day (yet whether this involves free access remains unclear). 
The Basque Country guarantees free access for children in need to at least one healthy meal 
each school day. 

Secondary schools  

Same as for primary schools. 

148 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Free and effective access to school-based activities 

Equal and inclusive access to school-based activities, including participation in school trips and 
sport, leisure and culture 

The share of children AROPE who lack access to regular leisure activities is in Spain below the 
EU average but the rate for school-based activities above the EU average. Several measures are 
reported to improve their access (e.g. vouchers to access sports and cultural activities for free 
distributed to 90,614 children). 

Framework for cooperation to provide after school care and opportunities to participate in sport, 
leisure and culture 

Some  local  initiatives  indicating  collaborative  efforts  (e.g.  in  Catalonia  with  care  services 
outside school hours), but no clear evidence of structured cooperation between these services. 

Free and effective access to healthcare 

Measures to facilitate early detection and treatment of diseases and developmental problems? 

A  wide  range of  screenings  is  provided free  of  charge  up to  the  age of  14,  including  dental 
routine check-ups, and national neonatal screening programmes. Primary care plays a central 
role,  offering  paediatric  check-ups  that  monitor  growth,  psychomotor development,  hearing, 
vision and vaccination status. Non-financial barriers (e.g. waiting lines) are noted, suggesting 
challenges in timely access. The share of children AROPE with very good health remains below 
EU average. 

Childhood vaccines recommended by the WHO 

The Spanish National Health System provides free vaccinations for all children. This is part of 
the universal healthcare coverage. While vaccination coverage is relatively high, there is still 
some scope for progress. 

Measures to facilitate early detection and treatment of mental health problems 

Measures are implemented, including free provision of mental health support. There is some 
evidence of non-financial barriers such as waiting lists. Children with low family affluence are 
more likely to feel low more than once a week than their better-off peers. Such gap is among 
the largest in the EU, suggesting scope for progress. The Mental Health Action Plan 2025–2027 
includes a specific focus on children, with an increase in psychologist and psychiatrist staff. 

Free prescription medicines 

Children covered by the Spanish National Health System receive medicines free of charge. Yet 
the extent to which all children in need are registered in such System remains to be clarified to 
achieve higher level of compliance. 

Provision of targeted rehabilitation and habilitation services for children with disabilities  

Measures  include  targeted  rehabilitation  services  for  children  with  disabilities  through 
integrated care models, like Andalusia's service combining health and education sectors. Aragon 
has  launched  mobile  Early  Care  and  Disability  Prevention  services.  Implementation  varies 
regionally,  with  barriers  (e.g.  long  waiting  lists).  A  nation-wide  Early  Care  Roadmap  was 
approved in Spain. 

149 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Health promotion and disease prevention programmes targeting children in need  

Spain implements programs at the regional level like Catalonia's FITjove, promoting physical 
exercise  among  adolescents.  Aragon's  Health  Promotion  Programme  educates  teachers  on 
healthy  environments.  Initiatives  like  the  "Kids  in  Motion"  program  in  Murcia  served  50 
children aged 9-11, teaching healthy lifestyle habits. Despite a country-wide Health promotion 
and prevention strategy, there is evidence of regional disparities, leaving scope for progress. 

Healthy nutrition 

Access to healthy nutrition outside of school  

Low-income families with dependent children are entitled to wallet cards which are topped up 
(e.g. at least € 130 per month for families with two children) and must be used to purchase food. 
More information on the number of children in need benefitting from this scheme  would be 
necessary to achieve higher compliance. 

Limited advertisement and availability of unhealthy food  

Royal Decree of “Law on Food safety and Nutrition” prohibits the sale of foods and beverages 
with a high content of saturated fatty acids, salt, sugars, and caffeine in educational settings. A 
Plan for the Reduction of Childhood Obesity sets the goal of reducing childhood overweight 
and  the  social  gap,  while  46.7%  children  in  disadvantaged  neighbourhoods  are  overweight 
compared to 29.3% of those in high-income neighbourhoods – such gap suggesting scope for 
progress. 

Combatting homelessness  

Provision  of  adequate  accommodation,  prompt  transfer  from  temporary  accommodation  to 
permanent housing, and relevant social and advisory services 

Spain implements policies to address broader housing-related issues among children, and it also 
rolls  out  a  national  Strategy  to  combat  homelessness,  aiming  to  prevent  and  eradicate  street 
homelessness through housing-based solution. More information related to the updated number 
of homeless  children  and  transitions  to  permanent  housing will  be  needed  to  achieve higher 
level of compliance.   

Measures to prevent the risk of homelessness among families with children 

The National Strategy to combat homelessness includes housing assistance, social support and 
eviction prevention measures. Rent allowances are rolled out by some autonomous communities 
to support families in covering part of rental costs and prevent eviction. There is also a focus on 
increasing public housing stock. Yet the Spanish share of children AROPE living in households 
facing  housing  cost  overburden  is  among  the  largest  in  the  EU  which  suggests  scope  for 
progress.   

Effective access to adequate housing 

Measures to address energy poverty of families with children 

Spain addresses energy poverty with e.g. an allowance for basic utilities. Additional measures 
include e.g. a funding programme to finance building energy renovations. While  these efforts 
aim to tackle energy poverty, the share of children AROPE living in household unable to keep 
their home adequately warm is among the highest in the EU. 

150 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Social housing for families with children  

While social housing is undeveloped in Spain, which results in long waiting lines, there are 
plans to invest in constructing energy-efficient social housing, with some prioritisation of 
vulnerable families with children, and local variations. 

Good alternative care standards 

Measures  to  ensure  that  the  best  interests  of  the  child  as  well  as  their  overall  situation  and 
individual needs are considered when placing them in alternative care 

Emphasis is put on transition to family-based care to prioritize children’s best interests. There 
is an implementation of the National strategy for a new model of care in the community (2024-
2030),    which  sets  a  roadmap  to  move  towards  a  more  individual-centred  model,  including 
through ensuring children’s voices are listened (coupled with preparation and training of foster 
families). Yet progress in the implementation remains unclear. 

Measures to ensure the transition of children from institutional care to quality family-based care 

Spain  implements  deinstitutionalization  by  promoting  family-based  care  with  targets  to 
eliminate residential care for children under 10 years of age by 2030. Measures include public 
campaigns and foster family support. Extremadura's 2024 foster care grants exemplify active 
implementation. Yet, nearly half of children in alternative care are still in residential care. 

Measures to support independent living and social integration of children leaving alternative 
care 

Spain supports independent living and social integration with initiatives like the "Experimental 
Continu-Action  Programme"  in  the  Region  of  Murcia,  aiding  youth  post-guardianship  to 
prevent  homelessness,  and  the  Valencian  Community  –  Emancipation  Network  which 
implements transition-to-adulthood programmes. These measures, actively implemented, aim 
to integrate  young individuals and ease  their transition from alternative care. Yet their scale 
remains unclear. 

Outreach and awareness raising 

The  action  plan  (and  the  progress  report)  features  several  communication/awareness-raising 
actions (e.g. development of new digital tools, training of social workers to meet specific needs 
of vulnerable children). Yet more active outreach to children in need is lacking. 

Stakeholders’ involvement 

Various stakeholders were consulted for the design of the action plan, including children and 
local authorities. 

151 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
FRANCE 

Identification of children in need  

The ECG action plan identifies children in need and reports the size of most groups of children 
experiencing specific disadvantages. The implementation report also features some updates of 
these figures. Yet some groups are not covered. For most (but not all) services, the action plan 
specifies categories of children who experience difficulties with accessing them. 

Free and effective access to early childhood education and care (ECEC), age 0-3 

Addressing the financial barriers 

ECEC  fees  are  calculated  based  on  household  income.  Not  all  low-income  households  can 
access ECEC freely. In addition, transportation is free for children below 4 but there is no free 
provision of meals. The participation gap between children AROPE and children not AROPE 
further suggests barriers hindering access of the former group. 

Addressing the non-financial barriers 

Target  to  establish  additional  200,000  places  by  2030  to  meet  the  demand,  with  no  clear 
targeting  of  children  in  need.  No  update  on  progress  in  implementing  training  and  hiring 
initiatives while there is evidence of some staff shortages. Some outreach measures (e.g. relais 
petite enfance) to improve take-up. 

Measures to support inclusive education and avoid segregated classes  

According to 2025 Eurydice report, children with special educational needs or disabilities, as 
well as those at risk of poverty or social exclusion benefit from eased access to ECEC. Non-
discrimination rule is explicit in admission policies and quotas are used to improve diversity.   

Free and effective access to ECEC, age 3-school 

Addressing the financial barriers  

Education is compulsory (and thus free) from the age of 3 years old. There is some provision of 
breakfasts yet the free provision of transportation and educational materials for children remains 
unclear. the participation rate is almost 100%. 

Addressing the non-financial barriers  

High participation rate (almost 100%) suggests low or non-existent unmet demand, but there is 
evidence of staff shortages. Lack of update  on progress in implementing training and hiring 
initiatives. Some outreach measures (e.g. relais petite enfance) improve take-up. 

Measures to support inclusive education and avoid segregated classes  

According to 2025 Eurydice report, children with special educational needs or disabilities are 
assigned specialised staff. Interpretation services are available for communication with parents 
from  migrant  background.  ECEC  facilities  that  have  high  proportions  of  children  at  risk  of 
poverty or social exclusion receive additional funding and can reduce group sizes.    

152 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Free and effective access to education 

Measures to prevent and reduce early school leaving, incl. personalised guidance 

The incidence of early leaving from education or training has remained broadly stable and below 
EU average (7.7% vs 9.3% in 2024). Additional measures are taken to better address it (e.g. 
establishment of a new administrative entity to prevent early school leaving through enhanced 
coordination between services). 

Measures to support inclusive education and avoid segregated classes  

Measures  taken  (e.g.  tailored  support  programs  such  as  Devoirs  faits,  efforts  to  integrate 
children  with  disabilities  into  ordinary  schools  with  specific  staff  accompanying  them,  with 
430,000  pupils  with  disabilities  supported).  However,  the  gap  in  rate  of  underachievement 
among  disadvantaged  and  advantaged  children  is  above  EU  average,  suggesting  scope  for 
progress  to  make  education  more  inclusive.  Important  regional  differences  do  exist  and 
difficulties in effectively accessing education persist in outermost regions, especially in Mayotte 
and French Guiana where the infrastructure is insufficient. 

Provision of free school materials (incl. digital equipment)  

Cash benefit provided to low-income households to help cover school materials’ costs. Free 
access  to  textbook  until  high-school  and  some  regional  initiatives  to  loan  textbooks  to  high 
school  pupils  for  free  (e.g.  Ile-de-France).  Digital  equipment  provided  for  free  for  in-class 
activities and some regional initiatives to fund provision of digital educational equipment of 
high-school pupils outside of class.   

Free transport 

No mention of free transportation for pupils in primary school. Fonds social collégien and fonds 
social lycéen support pupils facing specific expenses including transport, but the extent to which 
it covers all transport fees of children in need in Collège and Lycée remains unclear. 

Free healthy meal each school day 

ECEC  

According to the progress report, 242,045 pupils (from Maternelle onward) received breakfast 
in  2022-2023,  with  a  quarter of  them  living  in  outermost  regions.  The number  of recipients 
remains much lower than the overall number of children AROPE, suggesting scope for progress. 

Primary schools  

According to the progress report, 242,045 pupils received breakfast in 2022-2023, with a quarter 
of them living in outermost regions. In addition, children living in disadvantaged small towns 
can benefit from social pricing, offering lunch for a maximum price of € 1. 53,500 pupils were 
reported in the action plan to be covered by such measure annually. The number of recipients 
remains much lower than the overall number of children AROPE, suggesting scope for progress. 

Secondary schools  

Same as for primary schools. 

153 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Free and effective access to school-based activities 

Equal and inclusive access to school-based activities, including participation in school trips and 
sport, leisure and culture 

The rates of children AROPE lacking access to regular leisure and school-based (e.g. school 
trips) activities are below the EU average. Several measures reported to further improve their 
access  (e.g.  free  access  to  cultural  and  recreational  activities  for  children  through  vouchers 
distribution) 

Framework for cooperation to provide after school care and opportunities to participate in sport, 
leisure and culture 

Educational cities label created setting up a framework promoting cooperation between various 
local services, but still limited number of towns recognised under this label (around 200). Some 
additional measures indicating cooperation efforts (e.g. Wednesday plan to improve children’s 
access to leisure and cultural activities through cooperation at local level). 

Free and effective access to healthcare 

Measures to facilitate early detection and treatment of diseases and developmental problems? 

While there is a wide range of screening available for free until the age of 16 years, there is 
some  evidence  of  shortages  in  medical  staff  posing  a  barrier,  potentially  impacting  regular 
health check-ups for pupils.   

Childhood vaccines recommended by the WHO 

The  universal  health  insurance  system  covers  100%  of  vaccination  costs  for  mandatory 
vaccines. There is evidence of relatively high vaccination coverage, with still some scope for 
progress (e.g. as regards Rotavirus). 

Measures to facilitate early detection and treatment of mental health problems 

France facilitates mental health care through a program offering free access to 10 psychological 
sessions  for  children.  This  measure  is  implemented  to  ensure  early  detection  and  treatment. 
Children with low family affluence are more likely to feel low more than once a week than their 
better off peers, suggesting scope for progress. Their share has also increased in the past years. 

Free prescription medicines 

Prescription  medicines  are  free  for  disadvantaged  children  thanks  to  the  universal  health 
insurance  system  and  the  Solidarity  health  insurance.  These  implemented  measures  aim  to 
reduce  financial  barriers.  Yet  the  extent  to  which  all  children  in  need  are  registered  in such 
schemes remains to be clarified to achieve higher level of compliance. 

Provision of targeted rehabilitation and habilitation services for children with disabilities  

A framework to support the 1000 first days of children includes specific assistance to families 
with young children with disabilities. In addition, children or adolescents with disabilities may 
be eligible for support or accommodation in a medical-social establishment or service. There 
are not less than 430,000 children with disabilities in schools, receiving support from 132,000 
accompanying persons. 

154 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Health promotion and disease prevention programmes targeting children in need  

Several  disease  prevention  programmes  are  reported,  including  the  "M’T’  dents"  program 
which promotes dental health. Though these measures are implemented, more information on 
how they target children in need and their follow-up is needed to achieve higher compliance. 

Healthy nutrition 

Access to healthy nutrition outside of school  

Actions are undertaken, such as the  Malin programme (supporting access to healthy food of 
low-income households with baby through vouchers and discounts) and a programme which 
provides  vulnerable  families  living  in  hotels  with  access  to  kitchens,  and  food  literacy 
workshops. There were 11,300 beneficiaries in 2022, and France aims to increase this number 
to 20,000. More information on ways other children in need are supported would be necessary 
to achieve higher compliance. 

Limited advertisement and availability of unhealthy food  

Automatic vending machines of food and drinks are banned from schools, and canteen supply 
must meet specific quality standards, including 20% of organic products. The use of nutri-score 
is  also  promoted.  Yet,  there  is  a  gap  in  obesity  incidence  among  children  with  low  family 
affluence (24%) compared to children with high family affluence (15%), suggesting scope for 
improvement. 

Combatting homelessness  

Provision  of  adequate  accommodation,  prompt  transfer  from  temporary  accommodation  to 
permanent housing, and relevant social and advisory services 

France's  efforts  in  ensuring  homeless  children  receive  adequate  accommodation  include 
averaging 203,000 emergency accommodations, with 26,000 children hosted in hotels in Ile-
de-France. However, an estimated 2,000 children still sleep rough based on a study conducted 
by  UNICEF,  which  suggests  scope  for  progress.  Big  regional  differences  do  exist  and 
difficulties particularly persist in outermost regions, especially in Mayotte and French Guiana 
where children are not in family structures and the infrastructure and services are insufficient. 

Measures to prevent the risk of homelessness among families with children 

France provides housing benefits, including Personalized Housing Assistance (APL). There are 
also subsidies for unpaid rent and deposits. A plan to build new social housing units aims to 
further assist disadvantaged families. The French share of children AROPE living in household 
facing housing cost overburden is among the smallest in the EU. 

Effective access to adequate housing 

Measures to address energy poverty of families with children 

To  address  energy  poverty,  France  implemented  measures  like  the  'Bouclier  tarifaire  (tariff 
shield),' offering financial support and energy vouchers during the energy crisis to help low-
income households manage rising energy costs. While such ‘Bouclier’ is temporary, there are 
additional  support  measures  (e.g.  MaprimeRénov  or  Chèque  Energie).  Incidence  of  energy 
poverty among children AROPE is above the EU average, which suggests scope for progress. 

155 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Social housing for families with children  

Access to social housing depends on income, with certain priority given to families in need. 
While  the  share  of  social  housing  is  relatively  high  (15.9 %  in  2025),  France plans  to build 
250,000 new social housing units, with 90,000 to be allocated to disadvantaged families. Such 
objective  was  set  in  the  action  plan  yet  update  on  progress  toward  its  achievement  is  not 
included in the progress report. As regards children without families, regional differences are 
large, and difficulties particularly persist in outermost regions, especially in Mayotte and French 
Guiana. 

Good alternative care standards 

Measures  to  ensure  that  the  best  interests  of  the  child  as  well  as  their  overall  situation  and 
individual needs are considered when placing them in alternative care 

France  promotes  deinstitutionalization  through  resources  for  family-based  care.  A  law  from 
2022 ensures the child's best interests are taken into account during placement decisions. Yet 
the extent to which such measure includes child participation remains unclear. 

Measures to ensure the transition of children from institutional care to quality family-based care 

France's  plan  for  deinstitutionalization  includes  the  prohibition  of  using  hotels  for  minors, 
reflecting  ongoing  efforts  to  provide  family-based  care.  Resources  are  allocated  for  training 
carers and supporting foster care. The share of children in residential care is lower than the EU 
average.  Some  quality  issues  are  reported,  entailing  child  abuses,  and  suggesting  scope  for 
progress.   

Measures to support independent living and social integration of children leaving alternative 
care 

Efforts to support independent living for care leavers include transitional disposal until they are 
21  to  ensure  young  people  do  not  leave  alternative  care  without  any  opportunities.  There  is 
insufficient evidence to assess such measures as sufficient to support independent living and 
social integration of children leaving alternative care (e.g. more information on integration in 
the labour market could be presented).   

Outreach and awareness raising 

According to the action plan, regular consultations are organised with representatives of local 
and  regional  authorities,  as  well  as  of  non-governmental  organisations  and  with  children 
themselves, notably in the preparation of the action plan. The action plan identifies the need to 
involve  children  in  the  implementation  of  the  plan  and  its  evaluation.  Yet  there  is  a  lack  of 
follow-up in the implementation report. 

Stakeholders’ involvement 

The implementation report features active outreach targeting some groups of children in need 
(e.g.  setting  up of  support  units  called  ‘relais  petite  enfance’  to  accompany  parents  through 
application process for childcare). A call to address non-take up of childcare by disadvantaged 
households was also launched in 2021. Yet, no estimates of non-take up rates is provided, not 
allowing to assess whether the scope of these measures is large enough to be fully compliant.   

156 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
CROATIA 

Identification of children in need 

The action plan enumerates the targeted categories of children, numbers of which have been 
subsequently reported by the Child Guarantee Coordinator. The overall approach seems rather 
restrictive:  the  guaranteed  minimum  benefit,  which  is  used  to  operationalise  the  statistical 
notion of the risk of poverty or social exclusion is available to ca. 14 thousand children, while 
according to Eurostat data the number of children in need (i.e. AROPE) in Croatia is ca. 120 
thousand.  

Free and effective access to early childhood education and care (ECEC), age 0-3 

Addressing the financial barriers 

It is up to municipality to decide which groups of children are entitled to free ECEC. While 24 
municipalities offer free ECEC for all children, other do it only for disadvantaged children and 
some other have no creches whatsoever. Where ECEC services are not free, the cost might 
represent a significant barrier (ESPAN, 2023). According to 2025 Eurydice report, the average 
childcare fees in Croatia are higher than in 12 other EU Member States, but measures are in 
place to ease access by children AROPE. The share of children AROPE aged under 3 years 
who participate in ECEC decreased between 2022 and 2024. 

Addressing the non-financial barriers  

According to the ESPAN report, the barriers include lack of available places and waiting lists, 
geographical  disparities,  insufficient  staff  skills,  and  cultural  and  personal  perceptions  and 
attitudes.  According  to  European  Commission’s  Working  Group  on  Early  Childhood 
Education and Care, in 2023 Croatia faced a shortage of ca. 5,850 early childhood education 
teachers. 

Measures to support inclusive education and avoid segregated classes 

No information. 

Free and effective access to ECEC, age 3-school 

Addressing the financial barriers 

Local and regional self-government units, as founders of kindergartens, set programme prices 
and eligibility criteria, including categories of children entitled to free ECEC. Affordability is 
additionally  supported  through  state  budget  funding  for  the  fiscal  sustainability  of 
kindergartens, allocated in line with the development level of local units. These funds are used 
as an additional financing source to reduce parental fees and improve access and have enabled 
many municipalities and cities to introduce free kindergarten services. 

Addressing the non-financial barriers 

Same  barriers  and  shortages  as  for  the  younger  age  group.  The  National  Recovery  and 
Resilience  Plan  includes  support  to  379  kindergarten  projects,  expanding  capacity  by  ca. 
22,500 places. In addition, enrolment quotas at teacher training faculties have been increased 
and employment of primary education teachers in kindergartens has been authorised in case 
no pre-school educator applies.  

157 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Measures to support inclusive education and avoid segregated classes 

Children with developmental disabilities have priority in kindergarten enrolment in accordance 
with the  Preschool Education Act. In practice, most children are included in regular ECEC 
programmes,  with  additional  support  provided  where  needed.  In  2024/2025,  children  with 
disabilities were enrolled both in regular and specialised groups, with inclusive approaches 
ensuring interaction between children in specialised and regular settings. Work is ongoing to 
further strengthen support frameworks. 

Free and effective access to education 

Measures to prevent and reduce early school leaving, incl. personalised guidance 

Early school leaving is the EU record low 2.1% (data with low reliability), compared to the 
EU average of 9.1% (2025 data). Preventing dropping out of school and entering the NEET 
group, with an emphasis on vulnerable groups and pupils with developmental disabilities, is 
one of the priorities set out in the 2030 ECEC National Development Strategy. 

Measures to support inclusive education and avoid segregated classes 

The action plan envisages to promote inclusive educational practices. The measures focus on 
enhancing the competencies of educators and providing support to vulnerable groups through 
professional development, inclusive education training, and targeted assistance for pupils and 
parents. 

Provision of free school materials (incl. digital equipment) 

Compulsory textbooks have been free for all primary school pupils since 2018. Tablets for 
students receiving the guaranteed minimum benefit in secondary schools are funded from the 
state budget, whole funds for tablets for primary school students are from ESF. According to 
the ESPAN report, some of the costs for basic school materials and extramural activities may 
be subsidies for low-income students from local government budgets, but there is a lack of 
comprehensive data. 

Free transport  

Some  regional  and  local  governments  co-finance  transport  for  children  from  low-income 
families. There is no comprehensive data. 

Free healthy meal each school day 

ECEC 

Meals are offered for free only in those localities where ECEC is provided free of charge, or 
to the children from families receiving the guaranteed minimum benefit or the child allowance. 

Primary schools 

Free meals are provided to all pupils in primary schools, with the take-up rate of over 95%. A 
revision of the Standards for Nutrition of Primary School Students is being prepared, which 
prescribes recommended types of food and meals, optimal energy and nutrient intake, as well 
as  the  type  of  meals  and  the  distribution  of  recommended  energy  intake  per  meal  for  the 
purpose of proper nutrition of students while they are in primary school. 

158 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Secondary schools 

The free meals scheme does not cover secondary schools. Due to budget constraints, there are 
also no targeted mechanisms to offset the costs of food for children in need. Students from 
socioeconomically disadvantaged backgrounds are supported through other public policies and 
social welfare measures. 

Free and effective access to school-based activities 

Equal and inclusive access to school-based activities, including participation in school trips 
and sport, leisure and culture 

Extracurricular activities are currently not free and the financial cost can represent a barrier for 
low-income  households.  The  action  plan  envisages  to  increase  participation  of  AROPE 
children (esp. Roma children and children from Ukraine) in extracurricular activities and to 
provide  funds  for  extended  stay  and  extracurricular  activities  (e.g.  school  trips,  schools  in 
nature) for AROPE pupils. 

Framework  for  cooperation  to  provide  after  school  care  and  opportunities  to  participate  in 
sport, leisure and culture 

The action plan provides for creation of a framework for vertical and horizontal cooperation 
in the provision of integrated social services in the family and community. Not implemented 
yet. 

Free and effective access to healthcare 

Measures to facilitate early detection and treatment of diseases and developmental problems 

Comprehensive  (general  health,  hearing,  vision,  dental)  free  screening  programmes  are 
available  for  all  children  in  need.  At  school  enrolment  and  during  school  comprehensive 
(general health, hearing, vision, dental) free screening programmes are conducted by school 
doctors.  Long waiting lines and remoteness of medical services is some parts of the country 
continue to limit effectiveness of access. 

Childhood vaccines recommended by the WHO 

The vaccination rates are relatively high: over 92% against Polio and between 89% and 92% 
for the remaining childhood vaccines.  However, a deterioration in vaccination rates against 
Measles and Rubella has been recorded in recent years. Rotavirus immunisations are available 
free of charge for certain risk groups. 

Measures to facilitate early detection and treatment of mental health problems 

Measures 4.2.1 and 4.2.2 address early detection and treatment of mental health problems in 
children  and  young  people  through  strengthened  policy  coordination  and  expanded  service 
capacity. The Special Mental Health Strengthening Program operates in seven health centres, 
providing counselling and psychosocial support to children, families and communities, with 
over 44,000 interventions in 2025. Mental health screening has been integrated into systematic 
school health examinations, enabling early identification and referral of at-risk pupils.  

Free prescription medicines 

Prescription  medicines  are  free  of  charge  for  all  children,  but  action  plan  points  that  non-
prescription medicines can pose a significant financial barrier to access. 

159 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Provision of targeted rehabilitation and habilitation services for children with disabilities 

Rehabilitation and habilitation services are mentioned both in the action plan and in the first 
progress report, but there is no indication that they target individual needs of children with 
disabilities. There is also no information on the number of children with disabilities who would 
benefit from such services. 

Health promotion and disease prevention programmes targeting children in need 

Croatia  has  adopted  the  National  Strategy  on  Addiction  Policies  until  2030  and  the 
corresponding action plan, with emphasis on children and young people. Preparation of the 
Strategic Plan for Early Childhood Intervention and of the Action Plan for Early Intervention 
is  well  advanced.  The  ECG  action  plan  includes  i.a.  Measure  4.1.1  (the  Special  Early 
Intervention Support Program in Childhood is underway with the aim of establishing an early 
intervention  system  and  ensuring  timely  and  accessible  services)  and  Measure  4.1.3 
(continuous training on reproductive health to prevent teenage pregnancy and child marriage, 
targeted at Roma, on which there is no follow-up).  

Healthy nutrition 

Access to healthy nutrition outside of school 

Outside the educational system, there are no nutrition assistance programmes for children in 
need.  Some  municipalities  and  charities  operate  social  grocery  stores.  The  action  plan 
envisions the distribution of food packages to children in need enrolled in primary education. 
Confirmation that such schemes became operational is needed. 

Limited advertisement and availability of unhealthy food 

Food and beverage advertising aimed at children is regulated only in electronic media under 
the  Law  on  Electronic  Media.  In  2021,  a  working  group  was  established  with  mandate  to 
propose restrictions of food and drink advertising aimed at children; Commission has received 
no follow-up on its proceedings. 

Combatting homelessness  

Provision  of  adequate  accommodation,  prompt  transfer  from  temporary  accommodation  to 
permanent housing, and relevant social and advisory services 

Access to adequate housing for children at risk is addressed through existing housing and social 
policies.  Implementation  focused  on  preventive  and  structural  measures,  including  the 
adoption  of  the  National  Housing  Policy  Plan  until  2030  and  housing  support  measures 
benefiting  more  than  10,000  households.  Specific  programmes  target  Roma  families  and 
young people leaving alternative care. 

Measures to prevent the risk of homelessness among families with children 

In 2024, the share of children AROPE living in households facing housing cost overburden 
was 16.9%, i.e. below the EU average of 21.1%.  No information on specific measures in the 
action plan nor in the progress report. 

160 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Effective access to adequate housing 

Measures to address energy poverty of families with children 

In 2024, the share of children AROPE living in households unable to keep  home adequately 
warm was 8.1%, i.e. well below the EU average of 24.0%. The action plan includes measure 
5.1.3 (targeted energy poverty mitigation programmes for families with children AROPE) but 
there is no follow-up on its implementation in the progress report. 

Social housing for families with children 

The progress report mentions that each year ca. 400-500 families exercise their right to social 
housing, what is little when compared to the size of the population. There is no indication that 
families with children enjoy priority access to public housing.     

Good alternative care standards 

Measures  to  ensure  that  the best  interests  of  the  child as  well  as  their  overall  situation  and 
individual needs are considered when placing them in alternative care 

The progress report refers to the UN Guidelines for alternative care for children but the only 
specific factor that is mentioned in the context of placements in Croatia is spatial proximity to 
the child’s place of residence. 

Measures to ensure the transition of children from institutional care to quality family-based 
care 

Most (52%) of children in alternative care in Croatia live in residential institutions. The action 
plan  includes  measures  to  improve  quality  of  foster  care  (6.2.1-6.2.4),  but  those  are  not 
followed  up  in  the  progress  report.  According  to  the  progress  report,  the  number  of  foster 
parents decreased by ca. 17% between 2021 and 2023. 

Measures to support independent living and social integration of children leaving alternative 
care  

According  to  the  progress  report,  less  than  1%  of  the  entitled  care  leavers  use  organized 
housing  with  occasional  support  service  (measure  5.2.1  of  the  action  plan).  There  is  no 
information on the progress with measure 5.2.2 (housing allowance for youth leaving care), 
implementation of measure 6.3.1 (social mentoring for care leavers) is at an early stage. 

Outreach and awareness raising 

The progress report focuses on integrated early intervention services. Community-based early 
intervention teams are responsible for the early assessment and follow-up of children at risk of 
developmental  delays  or  disabilities.  There  is  no  information  on  effectiveness  of  those 
measures. The preparation of the Draft Strategic Plan for Early Childhood Intervention and the 
Action Plan for Early Intervention for a three-year period is in the final phase, the adoption of 
which is expected by the end of 2026. 

Stakeholders’ involvement 

The action plan includes a long list of institutions consulted in the preparatory phase, including 
various  ministries  and  state  agencies,  civil  society,  academia,  and  UNICEF.  The  local  and 
regional  governments  seem  to  be  not  represented,  and  there  is  no  evidence  of  children’s 
participation. It also seems that the consultations have not been repeated in the implementation 
phase, at least until the finalisation of the first progress report. Croatia intends to strengthen 
stakeholder involvement during implementation and monitoring. 

161 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
ITALY 

Identification of children in need  

Even though action plan focuses on absolute poverty (rather than the wider concept of the risk 
of  poverty  or  social  exclusion),  the  approach  towards  identification  of  the  target  group  is 
inclusive and comprehensive. The situation of various disadvantaged groups is discussed in the 
action plan and their numbers are given. Update is provided in the first progress report. The 
second  progress  report  gives  update  based  on  2024  data,  points  to  adopted  children  and 
Ukrainian minors as categories in need of special support, and stresses that pre-adolescents and 
adolescents (11-18 years) are an age group with increased fragility. 

Free and effective access to early childhood education and care (ECEC), age 0-3 

Addressing the financial barriers 

Earliest childcare is subject to fees, which are partially offset by tax deductions (on avg. 5% of 
the cost) and allowances (bonus nido, which in 2023 reached ca.  480,000 children, covering 
from 32% to 78% of actual costs – highest share for lowest ISEE bracket). The action plan set 
to reduce the costs to zero – for households below the absolute poverty line (ISEE of € 9,500) 
by  2024,  and  for  households  below  ISEE  of  € 26,000  by  2030.  ESF+  funds  in  regional 
programmes contribute to reducing costs for families 

Addressing the non-financial barriers 

The  supply  of  childcare  varies  across  regions  in  Italy,  being  lower  in  the  South,  Sicily  and 
Sardinia.  The  National  Recovery  and  Resilience  Plan  (NRRP)  aims  to  address  the  gaps.  As 
highlighted in the 2024 progress report, in the NRRP revision of December 2023 set to create 
150,480 new spots in full-time ECEC places for children under 3 years of age (reducing the 
initial target of creating around 264,000 new posts). 

Measures to support inclusive education and avoid segregated classes  

Italy  stresses  that  its  entire  regulatory  framework  is  based  on  generalised  school  inclusion. 
However, physical accessibility is only partial, and risks of de facto segregation persist. 

Free and effective access to ECEC, age 3-school 

Addressing the financial barriers  

Enrolment  in  early  childhood  education  and  care  for  the  age  group  3-5  is  free  of  charge. 
However, families still need to pay for meals, transport and optional services. Some regions and 
local authorities have introduced measures to exempt or reduce fees for families in need, but 
coverage remains uneven across the country, leaving some  of the economic barriers that can 
limit effective and inclusive access to early childhood education services still unresolved. 

Addressing the non-financial barriers  

The lower participation in pre-school among low-income children is mostly correlated with the 
ethnic background. The action plan set to provide full-time childcare to all children aged 3 years 
to mandatory school age. The progress report points to high ECEC participation rate of children 
from low-income households (84%) but does not provide any update on the respective measure. 

162 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Measures to support inclusive education and avoid segregated classes  

According to 2025 Eurydice report, children with special educational needs and/or disabilities 
benefit from assignment of  specialised staff, reduced group sizes, and additional funding for 
improving physical accessibility. No special measures are reported for children with migrant 
background or those at risk of poverty or social exclusion. Italy has a structured regulatory and 
organisational framework for inclusive education, which provides for the inclusion of all pupils, 
including the most vulnerable groups, in mainstream classes. 

Free and effective access to education 

Measures to prevent and reduce early school leaving, incl. personalised guidance 

Between 2021 and 2024, the incidence of early leaving from education and training decreased 
in Italy from 12.7% (3rd worst performer) to 9.8% (close to the EU average). The action plan 
set to prevent school dropouts through targeted interventions in 245 schools (“Agenda Sud” 
with budget of € 577 m in 2024-2025), address youth delinquency (“Caivano decree”), and to 
ease transition between education cycles. Projects such as “DesTEENazione” and other local 
plans involve psycho-socio-pedagogical teams, offering a stable space for listening and support, 
including for preventive purposes. The second progress report mentions also “Agenda Nord” 
with € 468 m budgeted for 2024-2025. 

Measures to support inclusive education and avoid segregated classes  

Students with disabilities attend mainstream classes. As per 2024 progress report, in the 2021-
2022 school year, only one in three schools was accessible to students with motor disabilities. 
More schools (76%) had computer stations adapted to the needs of students with disabilities. 
The 2024 progress report discusses measures taken, at a cost of € 40 m, to support educational 
inclusion  Roma,  Sinti  and  Caminanti  children.  There  is  no  information  on  the  incidence  of 
school segregation. The second progress report discusses measures taken to increase the number 
of skilled teaching assistants for pupils with disabilities 

Provision of free school materials (incl. digital equipment)  

In primary schools, textbooks are provided free of charge, but other materials need to be paid 
for.  Some  regions  and  municipalities  provide  grants  or  subsidies  for  the  purchase  of  books, 
notebooks,  backpacks,  etc.,  but  eligibility  is  limited  to  the  low-income  households  (ISEE 
<EUR 15,493.71), while funds are often limited and allocated on a ranking basis. Ca. 30% of 
low-income students benefit from financial support to partially cover the costs of schoolbooks. 

Free transport 

The  only  measure  in  this  respect  is  a  scholarship  to  cover  school-related  costs,  available  to 
primary  school  pupils  from  low-income  households  (ISEE  <  € 15,493.71).  This  means  test 
excludes most low-income students and the amount of the scholarship might not be adequate to 
defer all costs. 

Free healthy meal each school day 

ECEC  

Some municipalities offer exemptions or cost reductions for meals for some groups of children. 
In  22%  of  municipalities,  meals  are  free  for  low-income  households,  and  around  half  of 
municipalities  (mostly  outside  Southern  regions)  offer  some  cost  reduction  for  them.  The 
eligibility  thresholds  vary  significantly.  The  average  annual  expenditure  on  school  meals  in 
2021 was € 727 per child in pre-school facilities. 

Primary schools  

As explained by the Child Guarantee Coordinator, the offer and take-up of meals at school are 
dependent on the half- or full-day schedule. Overall, 46% of school buildings are equipped with 
canteens, ranging from 20% in Sicily to 88% in Valle d’Aosta. The cost of school meals and 
eligibility for full or partial refund depends on the choices made by individual municipalities. 

163 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Secondary schools  

The availability of canteens and school meals in secondary schools is even lower than in primary 
schools.  This  service  depends  mainly  on  local  policies,  which  are  entrusted  to  municipal 
administrations,  which  establish  criteria  and  methods  of  access  based  on  local  regulations, 
internal regulations and budget availability. 

Free and effective access to school-based activities 

Equal and inclusive access to school-based activities, including participation in school trips and 
sport, leisure and culture 

The action plan does not discuss measures to increase participation of children in need in school-
based activities. As a rule, extramural activities (e.g. school trips) are not free of charge. The 
2024  progress  report  presented  a  plan  for  expanding  sports  infrastructure  in  schools  (445 
projects worth € 349 m). 

Framework for cooperation to provide after school care and opportunities to participate in sport, 
leisure and culture 

According to the  first progress report,  funding for the 'DesTEENazione - Desideri in azione' 
project amounts to € 200 m from the ESF+ and € 25 m from the ERDF. The second progress 
report  describes  the  ‘Summer  Plan’  which  in  the  summer  of  2024  alone,  involved  699,077 
students. It is not clear, how many of them were children in need. 

Free and effective access to healthcare 

Measures to facilitate early detection and treatment of diseases and developmental problems? 

Child well-being visits (Bilanci di salute) are scheduled at specific ages, from birth to 14 years, 
during  which  the  family  paediatrician  assesses  the  child's  physical  and  psycho-emotional 
growth. This is less than in most other EU Member States that organise also specialised hearing, 
vision  and  dental  screenings  until  the  age  of  18  years.  The  action  plan  includes  a  “First 
Thousand Days” project with € 120 m funding for 2021-27.    

Childhood vaccines recommended by the WHO 

Five  out of  eight  childhood  vaccines  have  high  (94%  or  over)  coverage  rates,  but a  drop  of 
1 to 2 pp. was observed between 2023 and 2024 in Polio, DTP, Pneumococcal, Hepatitis B, and 
Rotavirus coverage rates. A new National Vaccine Plan has been recently adopted. As stressed 
in 2026 progress report, making some vaccinations mandatory for enrolment in nurseries and 
kindergartens has contributed to increased coverage and reducing disparities between regions. 

Measures to facilitate early detection and treatment of mental health problems 

The incidence of feeling low among children with low family affluence aged 13 years is high.  
The new National Plan of Actions on Mental Health 2025-2030 was adopted in late 2025, with 
six main areas of intervention, including “mental health in childhood and adolescence; transition 
from childcare and adolescence to adult care, access and continuity of care.” 

Free prescription medicines 

The conditions for receiving prescription medicines for free depend on a set of specific criteria 
(income, chronic diseases, age, social situation, etc.) and vary between regions. ESPAN report 
mentions only Lombardy and Apulia as regions where all children at risk of poverty or social 
exclusion are covered.   

164 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Provision of targeted rehabilitation and habilitation services for children with disabilities  

The  number  of  children  provided  with  targeted  rehabilitation  and  habilitation  services  is 
unknown.  The  action  plan  mentions  training  and  information  on  the  right  to  affectivity  and 
sexuality of minors and young people with disabilities, but this is not followed up in the progress 
reports. The 2024 progress report mentions enhancement of fair and inclusive health services 
(financed from ESF+) to benefit disadvantaged groups including children but not focused on 
children with disabilities. The 2026 progress report mentions financial allocations made in the 
school year 2024/2025 to schools which host pupils with disabilities. 

Health promotion and disease prevention programmes targeting children in need  

Some health promotion programmes,  notably on healthy nutrition and prevention of obesity, 
are in place in schools, but they are of general nature and not targeted at children in need. 

Healthy nutrition 

Access to healthy nutrition outside of school  

FEAD,  through  a  network  of  local  NGOs  or  financial  transfers,  reaches  about  half  of  the 
children  in  absolute  poverty  and  about  a  quarter  of  those  in  relative  poverty.  Families  with 
minors constitute one of the priority target groups. In 2022, the  Banco Alimentare collected 
over 110,000 tons of food and assisted around 1,750,000 people through a network of 7,612 
territorial partner organizations, with the support of 2,080 volunteers and employees. 

Limited advertisement and availability of unhealthy food  

The advertising of food products is regulated by the Code of Advertising Self-Regulation (Art. 
11) and the Consumer Code (Arts. 2, 23), which prohibit misleading messages or those that 
could  harm  health,  particularly  the  health  of  children.  However,  there  is  no  national  law 
explicitly limiting the advertising of foods high in sugar, fat, or salt. 

Combatting homelessness  

Provision  of  adequate  accommodation,  prompt  transfer  from  temporary  accommodation  to 
permanent housing, and relevant social and advisory services 

The national information system now allows for the detection of personnel and actions made 
available in the field of extreme poverty, including in favour of children. Italy has long been 
committed to tackling homelessness through projects financed by national and EU resources, 
following the housing-led approach. No further information. 

Measures to prevent the risk of homelessness among families with children 

Since  2015  Italy  has  been  following  the  housing-led  approach  (ca.  € 1  bn  under  ESF+  for 
tackling homelessness and € 177.5 m for personalised projects in the NRRP). The temporary 
housing assistance (group of flats for individuals or families in temporary hardship), lasting for 
ca. 2 years, is accompanied by a personalised projects to  strengthen autonomy. In 2024, the 
share of children AROPE living in households facing housing cost overburden was 15.2%, well 
below the EU average of 21.1%. 

165 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Effective access to adequate housing 

Measures to address energy poverty of families with children 

There are no measures on addressing energy poverty of families with children described in the 
action plan nor progress report. According to ESPAN report, distribution of housing allowance 
is subject to availability of funding (high in the pandemic years, zero in 2023). Other public 
spending on housing is targeted at promotion of home ownership. In 2024, the share of children 
AROPE  living  in  households  unable  to keep home  adequately  warm  was  20.0%  vs.  the  EU 
average of 24.0%. 

Social housing for families with children  

According to the action plan, publicly owned (incl. social) housing constitutes only 4% of the 
Italian housing stock and is managed at local level with no national guidance on priority access 
(allegedly,  some  communes  prioritize  families  with  children).  The  action  plan  refers  to 
Component  2.2  of  the  NRRP  on  investment  in  urban  regeneration  and  social  housing 
interventions (€ 9 bn). Further steps to expand social housing reported by the Child Guarantee 
Coordinator. The 2026 progress report refers to ‘Integra’ public notice for proposals aimed at 
the social inclusion of people at risk of serious social marginalisation. It not clear, to what extent 
this measure targets children in need. 

Good alternative care standards 

Measures  to  ensure  that  the  best  interests  of  the  child  as  well  as  their  overall  situation  and 
individual needs are considered when placing them in alternative care 

In the Italian civil law, minors must be listened to in proceedings which concern them. The 6th 
National  Action  and  Intervention  Plan  for  the  Protection  of  the  Rights  and  Development  of 
Children and Young People covers years 2025-2027. The 2026 progress report states that the 
decision to remove a child from the family is taken on the basis of a careful and comprehensive 
analysis  of  their  well-being  and  the  gravity  of  family  problems.  Measures  are  in  place  to 
strengthen parenting support, prevent removal, promote reunification and appropriate family 
alternatives. 

Measures to ensure the transition of children from institutional care to quality family-based care 

The share of children in residential care within the total  population of children in alternative 
care was 61.8% in 2025, having significantly increased since 2017. The action plan stresses 
unequal coverage by family foster care.  The guidelines for residential care services for minors 
require an individualised plan and discharge planning, with stable links between the community, 
local services and the family (natural or foster) to ensure continuity of care. The 2026 progress 
report  mentions  investments  in  recruitment  of  psychologists,  pedagogues,  and  socio-
pedagogical educators. 

Measures to support independent living and social integration of children leaving alternative 
care 

The National Plan for Social Interventions and Services 2021-2023, prepared by the Ministry 
of Labor and Social Policies, identifies the need to guarantee support for the independence of 
care  leavers  through  housing.  For  example,  by  promoting  social  housing  or  co-housing 
experiences that give care leavers the opportunity to experience semi-autonomy and consolidate 
their path to growth. No information on budget or number of beneficiaries. 

166 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Outreach and awareness raising 

The action plan identifies three kinds of outreach measures, including those targeted at children 
and  their  families.  The  2024  progress  report  presents  the  implemented  measures,  e.g. 
individualised  outreach  in  mobile  clinics.    In  the  2026  progress  report  stress  is  put  on  the 
national ECG website as the main channel of awareness raising. Overall, it seems that outreach 
measures targeted at most vulnerable children could be strengthened.   

Stakeholders’ involvement 

Already in the pilot phase an inter-ministerial steering committee was established, contributing 
to  the  “Deep  Dive”  analysis,  which  helped  the  formulation  of  the  action  plan.  Various 
stakeholder consultation formats remain in place, including the Youth Advisory Board. 

167 

 
 
 
 
 
 
 
 
 
CYPRUS 

Identification of children in need  

The national action plan identifies target groups, however without further characterising them 
(data, specific kinds of disadvantaged experienced by categories of children in Cyprus). There 
is limited information on the main obstacles identified, linking the main challenges with specific 
categories of children in need (e.g. children with a migrant background). There is no specific 
data on target groups or their evolution over the years . The second progress report mentions 
Guarantee Minimum Income and National Disability Strategy and Action Plan 2024–2028 as 
tools to identify disadvantaged children. 

Free and effective access to early childhood education and care (ECEC), age 0-3 

Addressing the financial barriers 

Free childcare is available for GMI recipients, and additional support is provided through the 
EU  co-funded  Tuition  and  Nutrition  Subsidy  Scheme,  which  covers  up  to  80%  of  costs 
(including meals) based on family circumstances. These measures have significantly increased 
participation  in  ECEC,  especially  for  children  under  3,  surpassing  national  targets.  Gaps  in 
access between disadvantaged (AROPE) and non-disadvantaged children have been reduced. 
Transport is free for children under 6.  

Addressing the non-financial barriers 

Barriers  to  participation  have  been  identified  by  an  EU-funded  project  “Support  for  the 
Expansion and Strategic Development of the Pre-Primary Education and Care in Cyprus” and 
addressed in respective strategy documents (incl  National Strategy and Action Plan on Early 
Childhood  Education  and  Care  adopted  in  December  2025).  At  least  nine  childcare  centres 
and/or  multi-purpose childcare centres are to be created by June 2026 (for children from 0 to 
3y 8 months). Still, public ECEC for <3y is scarce with only 2.6% of nurseries public. Efforts 
continue to provide childcare through schemes involving local authorities and civil society. An 
important, but decreasing, gap exists between children non-AROPE and AROPE in formal care. 

Measures to support inclusive education and avoid segregated classes  

2025 Eurydice report shows that children with special educational needs or disabilities benefit 
from assignment of specialised staff and reduced group sizes. Non-discrimination rule is explicit 
in admission policies. Cyprus adopted a revised National Disability Strategy 2018-2028 and a 
National Disability Action Plan 2024-2028) as well as the First Cyprus National Strategy and 
Action Plan for Autism 2024–2028. Despite these efforts, a more inclusive, targeted approach 
is  necessary  to  effectively  support  persons  with  disabilities  from  education  through  to 
employment. 

Free and effective access to ECEC, age 3-school 

Addressing the financial barriers  

Within  the  framework  of  the  national  Recovery  and  Resilience  Plan,  reforms  are  being 
implemented to expand access to early childhood education and reduce financial barriers. From 
the 2024–2025 school year, free compulsory education is being extended to younger children, 
with the starting age set to gradually decrease to 4 by 2031. Since September 2025, children 
aged 3 to 4.5 attending public kindergartens are exempt from tuition fees, while targeted subsidy 
schemes further support affordability: a universal scheme covers 100% of tuition fees for four-
year-olds during core hours (07:45–13:05), regardless of income, and additional support covers 
up  to  80%  of  tuition  and  nutrition  costs  based  on  family  circumstances.  For  the  2025–2026 
school year, funding has increased to € 23 m, benefiting over 10,000 children. Complementary 
measures include free public transport for children under 6 and reduced fares for older children. 

168 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
Addressing the non-financial barriers  

Under  the  Recovery  and  Resilience  Plan,  free  compulsory  pre-primary  education  is  being 
extended  from  age  4  addressing  age  and  access  barriers.  Investments  are  expanding  public 
kindergarten capacity, benefiting younger children too. However, public facilities still cannot 
accommodate the increased needs forcing many families to use the private ones. A new National 
ECEC Strategy aims to address staff shortages and boost participation in accessible, affordable, 
high-quality services 

Measures to support inclusive education and avoid segregated classes  

According  to  2025  Eurydice  report,  children  with  special  educational  needs  or  disabilities 
benefit from assignment of specialised staff and reduced group sizes. Non-discrimination rule 
is explicit in admission policies. Annual circulars guiding implementation of inclusive practices 
and reinforcing schools’ obligation to apply differentiation are issued. Cyprus adopted a revised 
National  Disability  Strategy  2018-2028  and  a  National  Disability  Action  Plan  2024-2028. 
Actions are also identified in the National Strategy and Action Plan for Autism 2024-2028. A 
more inclusive, targeted approach is necessary to effectively support students with disabilities. 

Free and effective access to education 

Measures to prevent and reduce early school leaving, incl. personalised guidance 

The  School  and  Social  Integration  Actions+  Programme  (2023–2024)  targets  early  school 
leaving via prevention, intervention, and remedial teaching in 189 schools. The TSI supported 
a  programme  to  tackle  learning  difficulties  and  early  school  leaving.  Five  education 
programmes support students with immigrant backgrounds, including unaccompanied minors.  
The incidence of early leaving from education and training is growing and above EU average 
(11.3% for CY vs 9.3% for EU in 2024). 

Measures to support inclusive education and avoid segregated classes  

Learning  and  support  programmes  for  unaccompanied  minors,  third  country  nationals  and 
pupils  with  migrant  background  are  offered  but  language  assistance  might  be  insufficient. 
Special education infrastructure and accessibility measures are supported. Public schools are 
required to provide special educational support and apply differentiated teaching practices. he 
Cyprus  Pedagogical  Institute  further  supports  schools  through  training,  workshops  and 
conferences on topics such as anti-racism, inclusion and human rights, as well as ongoing in-
service and follow-up seminars. Still, 2024 OECD TALIS report points to some shortcomings. 
No formalised disability-related support is provided in secondary education for students with 
disabilities and/or SEN in general classroom or special units.  

Provision of free school materials (incl. digital equipment)  

Compulsory school materials, which include textbooks, school supplies, notebooks are free in 
primary  education.  In  secondary,  all  pupils  are  provided  free  of  charge  textbooks,  including 
those for foreign languages. Optional all-day primary schools are subsidized with an amount 
intended to cover their operational costs, including a provision for educational resources. No 
fees are charged to pupils for educational materials and books. € 300 is provided to students 
aged 14 to 15 from low-income families to allow to buy a laptop. Additionally, pupils who are 
eight years old and come from low-income families may receive € 100 to acquire a tablet. 

169 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Free transport 

Transport for low-income children traveling long distances is subsidised. Transport is free for 
pre-primary/public school pupils using school buses. However, bus shortages exist, especially 
for  primary  students,  and  many  migrant/low-income  children  walk.  Pupils  with  special 
educational needs attending special units or special schools are entitled to free school transport 
to  and  from  school  when  placement  is  decided  outside  their  educational  district.  A  pilot 
programme has been created covering 29 schools across Cyprus, where school buses, regardless 
of distance, transport children from their home to the school (door to door). 

Free healthy meal each school day 

ECEC  

Tuition Subsidy and Feeding Scheme  for Children up to four years of age provides families 
with a monthly subsidy of up to 80% of kindergarten tuition and meals, from € 50–350 per child 
depending on  income  and  family  size.  In  2022  it  supported  6,976  children,  while  2021 data 
show much higher number of at risk of poverty in this group age. In July 2023, expanded income 
criteria  increased  the  number  of  eligible  children  by  40%.  A  separate  “Free  Breakfast 
Programme’’ offers daily healthy breakfasts to eligible public-kindergarten pupils aged 4½–6. 

Primary schools  

The “Free Breakfast Programme” provides a daily healthy breakfast to students selected based 
on financial and social criteria. Low-income children in optional All-day schools also receive a 
free, nutritionist-designed lunch, covered by the ministry, the European Social Fund, and other 
sponsors. These schemes support children aged 5–17 in primary and secondary education. 

Secondary schools  

The “Free Breakfast Programme” provides a daily healthy breakfast to students selected based 
on financial and social criteria. Low-income children in optional All-day schools also receive a 
free, nutritionist-designed lunch, covered by the ministry, the European Social Fund, and other 
sponsors. These schemes support children aged 5–17 in primary and secondary education. 

Free and effective access to school-based activities 

Equal and inclusive access to school-based activities, including participation in school trips and 
sport, leisure and culture 

Students pay for mandatory extracurricular activities, e.g. excursions and cultural events (one 
per  trimester).  However,  EU-funded  programmes  subsidise  these  activities,  and  low-income 
primary students are often exempt. Grants for afternoon activities are available for vulnerable 
children. Low-income students get priority in public summer schools and free access to sports 
via the ‘Sports for All’ programme. Cyprus has introduced targeted subsidies for families with 
children at risk of insufficient income in form of a monthly grant of up to € 800 per family, 
including up to EUR82.50 per child for participation in afternoon out of school activities. 

Framework for cooperation to provide after school care and opportunities to participate in sport, 
leisure and culture 

The  State  Institutes  of  Further  Education  offers  low-income  children  access  to  skill 
development, especially for those unable to afford private tutoring. In many secondary schools, 
Student  Welfare  Committees  and  Solidarity  Groups  donate  funds  raised  to  support 
disadvantaged  students.  Parents’  associations  also  help  identify  and  support  low-income 
students.  

170 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Free and effective access to healthcare 

Measures to facilitate early detection and treatment of diseases and developmental problems? 

Free  screening  programmes  to  all  children/low-income  children  including  preventive  dental 
care are available. ESPAN report mentions that while healthcare for low-income children is not 
completely free (co-payments), their financial protection is ensured through the use of reduced 
annual cap. There are certain categories of patients fully exempt from the co-payments. ECG 
monitoring framework indicates limited provision of healthcare for children in need for infant 
nurses, specialist care, dental. In December 2025, Cyprus adopted a new legal framework for 
prenatal and neonatal screening programmes, broadening the scope of free testing including in 
the programme additional hereditary metabolic diseases. 

Childhood vaccines recommended by the WHO 

High rates of vaccination of the main vaccines. Children who are not registered with the GHS 
have access to the State Health Services Organisation and the National Vaccination Centres and 
the Maternal and Child Welfare Clinics which are available in all districts. Rotavirus is not part 
of the National Vaccination Scheme but is available at this point from private paediatricians. 

Measures to facilitate early detection and treatment of mental health problems 

Children are entitled to 6–24 free psychologist visits per year depending on diagnosis. Action 
plan  specifies,  i.a.  expanding  network  of  psychologists/psychiatrists,  a  Centre  for  neuro-
developmental disorders, and support for municipalities with staff and capacity building for the 
early detection and prevention. Through a TSI, CY works to improve youth mental health via 
prevention,  outreach,  and  community  services,  feeding  into  the  National  Mental  Health 
Strategy. The Ministry of Health is advancing plans to establish Youth and Adolescent Health 
Promotion  Centres  to  ensure  equal  access  to  quality  preventive  services.  These  centres  are 
intended to serve as key hubs for prevention and early intervention, offering a holistic, child-
centred approach to physical, mental and social health, guided by principles of accessibility, 
non-discrimination and the best interests of the child. Their design is expected to be completed 
by the end of 2026, with a pilot phase planned to begin in 2027. 

Free prescription medicines 

The national system covers prescription medicines. These medicines are included in the "List 
of Pharmaceutical Products". Beneficiaries pay a co-payment of € 1 per pharmaceutical product 
and a contribution equal to the difference between the price of a pharmaceutical product chosen 
by the system, which is not covered by it (generic vs brand name). There is an annual cap of 
€ 75 for those under 21. 

Provision of targeted rehabilitation and habilitation services for children with disabilities  

Children with disabilities receive cash benefits and other support. According to ESPAN report, 
the healthcare coverage is often considered inadequate. The availability of rehabilitation centres 
is  limited.  A  registry  for  neurological  patients  helped  expand  physiotherapy  access.  An 
expansion of rehabilitation services is planned in the National Disability Strategy & Action Plan 
for 2024-2028. Children who are not beneficiaries of the GHS, such as children of applicants 
for international protection, receive free rehabilitation services in public hospitals. 

171 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Health promotion and disease prevention programmes targeting children in need  

Action plan mentions the School Health Services, which work to prevent diseases and promote 
the health and well-being of pupils. For children not registered to the GHS, the Maternity and 
Child Protection Centres offer free preventive services to infants/children to promote health and 
prevent disease  through monitoring  of  infants  and  children  of  pre-school  age by  conducting 
preventive tests. There is a Strategy on the Rights of Children in Health: 2017-2025. Mother 
and Child Protection Centres in Cyprus provide integrated public health services for all children, 
including  vulnerable  groups  not  covered  by  the  GHS,  ensuring  access  to  vaccinations, 
developmental monitoring and parental guidance on care, nutrition and wellbeing. The School 
Health  Service  plays  a  key  preventive  role  through  regular  health  screenings,  medical 
assessments, vaccination monitoring and referrals, as well as support for children with chronic 
conditions  and  management  of  communicable  diseases.  It  also  delivers  health  education 
programmes on topics such as hygiene, nutrition, mental health, and sexual health, promoting 
the  overall  wellbeing  and  healthy  development  of  children  and  adolescents.  Several  other 
preventive programmes are mentioned in the second report. 

Healthy nutrition 

Access to healthy nutrition outside of school  

The  action  plan  sets  to  support  access  to  healthy  meals  also  outside  school  days,  including 
through in-kind or financial support. Vouchers for children in need to buy basic goods (Easter, 
Christmas)  are  voluntary  and  managed  by  schools.  During  COVID-19  closures,  a  one-off 
allowance  covered  breakfasts  for  children.  Social  Grocery  Stores  and  municipal  or  charity 
initiatives provide general food aid to low-income families, but  it is not clear if they ensure 
access to healthy meals for children outside school hours, and if any financial support exists for 
this purpose. 

Limited advertisement and availability of unhealthy food  

There are limits on advertising and restrictions on the availability of foods high in fat, salt and 
sugar in ECEC and schools. Any advertising in state schools is prohibited. There is a list of 
products available in school canteens approved by the Central Committee for the Control of 
School Canteens. Foods high in fat, salt and sugar are not included in the price lists of items. 

Combatting homelessness  

Provision  of  adequate  accommodation,  prompt  transfer  from  temporary  accommodation  to 
permanent housing, and relevant social and advisory services 

Social Welfare Services play a key role in offering immediate support, including financial aid 
and  temporary  accommodation.  However,  the  absence  of  a  coordinated  national  framework 
limits  the  effectiveness  of  these  interventions.  More  information  is  needed  on  deadlines  for 
provision  of  temporary  accommodation  for  homeless  families  with  children  and  for  their 
transfer from temporary accommodation to permanent housing. 

Measures to prevent the risk of homelessness among families with children 

Two  housing  allowances  are  available  for  financially  vulnerable  households  under  the  GMI 
scheme, plus a rent subsidy scheme and "Rent Against Instalment Plan” which aims to protect 
the  primary  residence  from  the  sale  or  liquidation.  The  Housing  Policy  framework  aims  to 
increase supply of housing and allocating government funds through revised housing plans with 
simplified  procedures.  Measures  are  complemented  by  targeted  allocation  mechanisms  that 
prioritise  vulnerable  households,  including  families  with  children.  Additional  housing 
allowance is available to minors receiving GMI. Lack of reliable/comprehensive data (as per 
report). 

172 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Effective access to adequate housing 

Measures to address energy poverty of families with children 

The  action  plan  lists  measures  for  vulnerable  electricity  customers.  Financial  assistance  is 
available to recipients of key social benefits, GMI, Single-Parent Family Allowance, and Child 
Allowance for families with three or more children—by granting them a special 20% discounted 
electricity tariff. Emergency social aid to GMI-receiving households is offered to cover essential 
needs,  including  the  purchase  of  energy-efficient  electrical  appliances,  furniture,  and  other 
necessary  household  equipment.  A  reduced  9%  VAT  rate  for  electricity  for  household 
consumers  was  prolonged  until  31  March  2027.  Since  share  of  children  AROPE  living  in  a 
household  unable  to  keep  home  adequately  warm  is  much  higher  in  Cyprus  vs  EU  average 
(62.6% vs 24%) efforts need to be continued. 

Social housing for families with children  

The new comprehensive housing policy focuses on measures which give priority to families 
with  children  through  targeted  housing  schemes.  Limited  affordable  housing  exists  through 
initiatives aimed at low-income households and refugees (e.g. repair of refugee settlements and 
self-housing settlements). It is not clear if the existing scheme is sufficient. 

Good alternative care standards 

Measures  to  ensure  that  the  best  interests  of  the  child  as  well  as  their  overall  situation  and 
individual needs are considered when placing them in alternative care 

New laws on adoption law  are to be  adopted. The bill asks among others to ensure the best 
interests of the child in accordance with the Convention on the Rights of the Child, hearing the 
child's  opinion  in  accordance  with  his  or  her  age  and degree  of  maturity.  Placing  a  child  in 
alternative care is made upon a Court Order according to their individualized and specialized 
needs. A care plan is created for each child and based on their best interest. Still, challenges 
persist as existing frameworks often remain outdated and fragmented with sometimes ilimited 
prioritisation of children’s rights.  

Measures to ensure the transition of children from institutional care to quality family-based care 

The  action  plan  and  progress  report  mention  new  rules  on  alternative  care  to  improve  the 
effectiveness  of  the  child  protection  and  care  services  and  to  regulate  the  semi-independent 
living program for transition to adulthood. Details on the roll out and content of the rules are 
missing. Still, share of children in residential care out of children in alternative care vs. children 
in alternative care is high (65.5%). Progress on de-institutionalisation and foster care is limited, 
especially for children with disabilities (e.g. insufficient training, lack of adequately supported 
foster families). 

Measures to support independent living and social integration of children leaving alternative 
care 

To  improve  alternative  care  and  transition  to  adulthood,  Cyprus  implements:  (1)  a  Semi-
Independent Living Programme (16–21) offering subsidised housing, psychosocial support and 
life-skills  training;  (2)  a  government-funded  multidisciplinary  team  providing  holistic 
assessments and individual plans for children in residential care; and (3) a Financial Support 
Scheme for care leavers for studies or starting a small business, promoting social and labour 
market integration. Still challenges persist, such as coordination and resource due to fragmented 
policies and limited funding. There is no further analysis of the efficiency of the system in the 
report. 

173 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Outreach and awareness raising 

The action plan enumerates various outreach and awareness raising channels, including creation 
of publications in printed and electronic form, organisation of events, presence in the media and 
use of social media. Progress report informs about Welfare Benefit Management Service of the 
Deputy Ministry of Social Welfare working with the private sector to provide additional support 
measures (e.g. food or scholarships). More information on targeted proactive approach targeting 
children in need at local level would be welcome. 

Stakeholders’ involvement 

The implementation and monitoring of the National Action Plan is carried out by the Technical 
Committee  established  by  the  competent  Ministries/Services,  under  the  coordination  of  the 
Deputy Ministry of Social Welfare and consultations with children and civil society. The ECG 
progress report was publicly consulted on the electronic platform of the Republic of Cyprus «e-
Consultation».  Still  children’s  participation  in  decision-making  and  consultation  with  civil 
society  and  NGOs  leaves  space  for  improvement  (e.g.  informing  CSO  to  which  extent  their 
feedback is used in policy making). 

174 

 
 
 
 
 
 
 
 
 
LATVIA 

Identification of children in need  

The action plan outlines support for all children and specific groups in Latvia, such as children 
with disabilities, deprived of parental care, or victims of violence. It provides data on vulnerable 
groups but not their specific disadvantages. The first biennial report identifies target groups and 
compares current figures with those in the action plan, yet it remains unclear whether the ECG 
measures have positively influenced these numbers. The second report provides updates figures 
on  3  target  groups  without  analysis  on  existing  challenges  and  effectiveness  of  provided 
measures. 

Free and effective access to early childhood education and care (ECEC), age 0-3 

Addressing the financial barriers 

ECEC is provided in unitary settings and universally available free of charge for all children 
aged 18 months till school age (6-7 years). Fees may be collected for children's meals during 
the day and/or extra activities. ECEC is subsidised for all children of the same age cohort who 
attend private ECEC. Children below 7 travel for free. 

Addressing the non-financial barriers 

Childcare is in short supply in 14 local governments out of 42. The government lends money to 
municipalities for construction of new facilities and investments into existing ones. EU funding 
finances  projects  providing  pre-primary  education.  Local  government  financial  support  for 
participation in ECEC has increased. Some municipalities also support financially families of 
children using babysitter services. According to OECD, Latvia faces teacher shortages at all 
levels of education. Efforts to address the issue include increase of the minimum salary for pre-
school teachers, introduction of new teacher induction programmes, and mentoring. 

Measures to support inclusive education and avoid segregated classes  

Children  with  SEN  or  disabilities  benefit  from  assignment  of  specialised  staff  and  reduced 
group  sizes.  Children  with  migrant  background  are  admitted  regardless  of  residence  status. 
Some groups of children (e.g. orphans) have priority on the  waiting list.  Non-discrimination 
rule is explicit in admission policies.  To address shortage of teachers, the minimum monthly 
salary rate for educators was increased as of 2025. An additional € 30 m has been allocated in 
2025 for teacher remuneration. From Sept 2025, a new funding model is implemented to ensure 
a  more  stable  and  competitive  salary.  Several  improvements  are  mentioned  in  the  second 
progress report, e.g. new system for identification of risks and special needs. 

Free and effective access to ECEC, age 3-school 

Addressing the financial barriers  

For ages between 3-5 see the information above for 0-3 age group. From the age of 5-6, all 
children must be enrolled in a public pre-school education institution. 

Addressing the non-financial barriers  

For ages between 3-5 see the information above for 0-3 age group. From the age of 5-6, all 
children must be enrolled in a public pre-school education institution. 

Measures to support inclusive education and avoid segregated classes  

Same analysis as for age group 0-3. 

175 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Free and effective access to education 

Measures to prevent and reduce early school leaving, incl. personalised guidance 

The  national  action  plan  mentions  ESF+  project  until  Dec  2023  on  reducing  early  school 
leaving.  A  new  project  “School  in  the  Community”  is  implemented  (January  2025-August 
2029) with the aim to develop a school–community (municipal education ecosystem) model, 
strengthen inter‑institutional cooperation, and promote the involvement of pupils’ parents in the 
educational process. The project seeks to ensure coordinated support to reduce the risks of social 
exclusion and early school leaving. The share of early leavers from  education and training in 
2024 was below the EU average (7.9% in Latvia vs 9.3%). 

Measures to support inclusive education and avoid segregated classes  

The action plan mentions a 2023 project on competency-based curriculum approach to update 
learning material and curricula. Individual needs assessment is offered. In 2021, 67% of local 
schools  offered  inclusive  education.  Starting  in  2023,  € 14.7 m  go  to  promote  learning 
performance  of  students  and  creating  a  learning  environment  that  contributes  to  their  well-
being. The first report mentions general measures (no information on funding or coverage) to 
enhance the special education system. Second report informs about possible reviews of law to 
improve  inclusive  education  (e.g.  increasing  availability  of  teachers  and  teacher  training), 
projects  in  special  educational  institutions,  Erasmus+  activities  and  Partnerships  for 
Cooperation. 

Provision of free school materials (incl. digital equipment)  

Some of the compulsory basic school material is provided by schools for all children.  It is also 
possible to receive basic school material packages delivered to children aged 5-16 by the ESF+ 
programme for Addressing Material Deprivation (co-financed by the state). Municipalities also 
provide  school  aid  for  families.  Therefore,  most  but  not  all  items  of  basic  material  can  be 
considered as being free for low-income children. 

Free transport 

Pupils can benefit from various transport concessions depending on the education level, type of 
household, place of residence, route, and disability status. For example, pupils (grades 1–12) 
attending municipal schools, or whose declared residence is in Rīga, can get a “Pupil’s e‑card” 
that  gives  100%  discount.  Orphans  and  children  with  disabilities  and  their  accompanying 
persons are provided free of charge with both regional and national public transport. Thanks to 
RRF, some municipalities have introduced services to bring pupils to school, where access to 
public transport is limited. 

Free healthy meal each school day 

ECEC  

Pre-school meal fees in Latvia vary by municipality. Most parents pay full costs, while some 
municipalities cover part or all expenses. In 2017, 13 municipalities offered free meals to all 
children; 55 provided free meals to children from needy and low-income families; 37 offered 
full support for needy and partial for low-income families; and 13 gave partial support to both 
groups. 

176 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Primary schools  

One hot meal per day is paid for by state and local municipalities for all pupils in grades 1 to 4 
in all schools, including private. The municipalities may determine the range of other groups of 
pupils whose school meals are covered. From grade 5 onwards, the situation varies from one 
municipality to another. The overall co-financing remains low and it is not clear if it has been 
recently indexed with inflation. 2025 action plan to improve the school meal system in Latvia. 
In 2026, additional funding was allocated from the State budget for the ‘School Milk and Fruit 
Scheme’ for the supply and distribution of fruit and vegetables. 

Secondary schools  

Some municipalities provide financial support to provide pupils with meals, particularly pupils 
from disadvantages families. Schools are also able to use remaining state budgetary resources 
to sponsor meals beyond the 4th grade. 

Free and effective access to school-based activities 

Equal and inclusive access to school-based activities, including participation in school trips and 
sport, leisure and culture 

It is not clear from the action plan nor 2024 progress report if equal and inclusive access is 
ensured for children in need to school-based activities, more information on this is welcome. 
According to the ESPAN report, there are some school-based activities financed by the parents 
and parents of low-income children may find it difficult to cover such costs. Report mentions 
expansion of art and cultural events programme ‘Latvian School Bag’ to at least 5000 socially 
disadvantaged children and young people. Second report mentions, i.a. ESF+project aiming at 
promoting civic participation through cultural events and other initiatives. 

Framework for cooperation to provide after school care and opportunities to participate in sport, 
leisure and culture 

There  is  no  single  framework  document  that  uniformly  regulates  cooperation  among 
educational  establishments,  local  communities,  social,  health  and  child  protection  services, 
families  and  social  economy  actors.  However,  this  cooperation  is  ensured  through  councils, 
inter ministerial working groups and coordination mechanisms established at ministerial level. 
These bodies facilitate  regular information exchange, joint decision making and coordinated 
support for inclusive education, after school care and children’s participation in sports, leisure 
and cultural activities. 

Free and effective access to healthcare 

Measures to facilitate early detection and treatment of diseases and developmental problems? 

Newborn screening programmes are implemented. The State covers children’s consultations, 
preventive  check-ups,  lab/diagnostic  tests,  dental,  rehab,  and  surgical  services.  Some 
municipalities  grant  eyeglasses  or  financial  aid  for  dental,  dentures,  and  health  services  to 
children  from  low-income  households.  Most  municipalities  provide  social  benefit  for  poor 
households to cover expenses connected to health expenses that have not been covered already 
by the state. An interdisciplinary and holistic system for prevention and early intervention for 
children is being developed. 

Childhood vaccines recommended by the WHO 

Latvia has an effective vaccination system, as evidenced by the data on vaccination coverage 
among  one  year-old  children.  Vaccination  coverage  against  diphtheria,  tetanus,  pertussis 
hepatitis B, poliomyelitis, Haemophilus influenzae B, measles and rubella exceed 95%, while 
vaccination  rates  against  pneumococcal  infection  and  rotavirus  are  somewhat  lower  - 
respectively 92,1% and 85% in 2024. 

177 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Measures to facilitate early detection and treatment of mental health problems 

Action plan mentions early developmental assessments for all children between 18 months and 
three  years  to  help  identify  developmental  disorders  and  possible  special  needs.  ‘Integrated 
health promotion and disease prevention measures’ project focused i.a. on mental health. Report 
informs about new social rehabilitation programmes for children with behavioural disorders, 
improvements in cooperation between state and municipal institutions to address violence in 
school, projects on children’s emotional resilience. A network of Child Support Specialists is 
being  introduced.  Issues  persist:  shortage  of  professionals,  societal  stigma  towards  mental 
health, fragmented system in need of more coordination. 

Free prescription medicines 

There is a possibility for partial or full state reimbursement of medicines, which is limited. A 
recent  reform  aims  to  reduce  the  medicine  price  by  15-20%  by  i.a.  capping  top-up  price  in 
pharmacies and by broadening the list of reimbursable drugs.  

Provision of targeted rehabilitation and habilitation services for children with disabilities  

Action plan mentions measures to prevent or reduce the risk of disability. Local governments 
offer  multidisciplinary  social  rehabilitation  and  training  (e.g.  for  children  with  reduced 
mobility). Report mentions an increase in a care benefit and an additional supplement of € 160 
for a child with disability, improving the system for determining disabilities in children, project 
on  support  system  for  children  with  serious  illnesses  and  their  family.  ESF+  allocates  € 68 
million  to  deinstitutionalisation,  developing  community-based  and  family-oriented  care 
services for children with a disability. Issues persist: uneven geographic access, limited scope 
of state funded services, long waiting times, etc. 

Health promotion and disease prevention programmes targeting children in need  

Latvia scores low in health outcomes and has a high share of children with low family affluence 
who smoked. The share of spending directed at prevention is at 2.8% of total spending on health 
in 2022 (vs EU 5.5% EU average). it is not clear whether the disease prevention measures that 
were implemented between 2016 and 2023 are continued. 

Healthy nutrition 

Access to healthy nutrition outside of school  

Latvia  does  not  offer  fully  state-funded  healthy-nutrition  support  for  low-income  children 
outside school meals. Assistance for children in precarious situations comes partly from FEAD 
and  ESF+,  which  provide  food,  child  food  packages,  hygiene  items  and  school  supplies. 
Benefits remain low, as do minimum-income thresholds. ESF+ support is available to needy 
and low-income households and those in crisis, with income limits updated annually. 

Limited advertisement and availability of unhealthy food  

Advertisement  and  availability  of  foods  high  in  fat,  salt,  and  sugar  are  limited  through 
regulations, especially concerning children, and by banning junk food sales in schools. There 
are restrictions on marketing unhealthy foods to children, covering television advertising and 
the sale of these products in schools and nurseries. As per action plan, a long-term policy to 
promote healthy nutrition for children e.g. via reduced tax for food for infants and for fresh fruit 
and  vegetables  is  implemented.  There  is  also  ‘Action  Plan  for  Reducing  the  Increase  in 
Overweight and Obesity in 2025. 2029’ with measures on promotion of children's healthy eating 
habits and several other initiatives described in the report. 

178 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Combatting homelessness  

Provision  of  adequate  accommodation,  prompt  transfer  from  temporary  accommodation  to 
permanent housing, and relevant social and advisory services 

Rules  on  housing  assistance  prioritise  families  and  households  with  dependent  minors  or 
children  with  disabilities,  offering  temporary  accommodation  or  help  with  housing  costs. 
However, data on efficiency, timelines for temporary/permanent housing, or advisory services 
is lacking. Severe housing deprivation affects 30.8% of children AROPE in LV compared to 
15.9% across the EU (2020). 

Measures to prevent the risk of homelessness among families with children 

Measures include housing assistance, benefits, limited social housing, electricity bill aid, and 
partial debt coverage for home loans, one off grants for families with disabled children or big 
families. As of Oct 2025, households, including families with children, who plan to purchase 
housing in the regions, can apply for a mortgage loan not only in commercial banks, but also in 
ALTUM  state-owned  development  finance  institution.  There  is  no  national  homelessness 
strategy nor comprehensive data in the area. A housing benefit covers rent and utilities, under 
certain  conditions.  The  2026 budget  includes  improvements  in  material  support  for  families 
with children. 

Effective access to adequate housing 

Measures to address energy poverty of families with children 

Rules  on  the  electricity  market  provide  that  protected  users,  that  is  poor  or  disadvantaged 
households, large families or families with children with disabilities, and persons of disability 
group I - are entitled to a protected user trading service (automatically reduced electricity bill). 
2024 Share of children AROPE living in a household unable to keep home adequately warm is 
below  EU  average  (10.9%  vs  26.4%).  New  (increased)  coefficients  for  the  calculation  of 
housing benefit have been temporarily determined. 

Social housing for families with children  

The share of social housing (2%) is among the lowest in OECD (7% housing stock on average). 
The eligibility rules for housing support leave out many households whose incomes are too low 
to  afford  market  renting  or  taking  out  a  mortgage.  Priority  access  is  limited  to  orphans  and 
children  left  without  parental  care  and  families  with  a  child  with  disability.  New  affordable 
municipal housing for low-income households is built with RRF and the EIB support, but this 
does  not  target  by  default  the  most  vulnerable  households,  but  rather  the  “missing  middle” 
income  groups.  € 70 m  is  planned  under  cohesion  policy  funds  for  the  renovation  and 
construction of new social housing. 

Good alternative care standards 

Measures  to  ensure  that  the  best  interests  of  the  child  as  well  as  their  overall  situation  and 
individual needs are considered when placing them in alternative care 

The action plan states that child’s rights and best interests take priority. If out-of-family care is 
ordered, siblings should not be separated, and child’s view is considered when choosing care 
type. Orphans and children without parental care must be placed in a family setting (foster or 
guardian), with institutional care only as a last resort. However, it is unclear if the law is applied 
consistently. 

179 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Measures to ensure the transition of children from institutional care to quality family-based care 

The share of children in residential care out of the children in alternative care is 9.4% (40,9% 
EU  average).  Support  centres  recruit  and  train  foster  families,  implement  support  plans  for 
foster  and  specialised  carers,  and  provide  psychological  help.  With  the  support  of  the  EU 
cohesion  funds,  Latvia  is  investing  in  deinstitutionalisation,  incl.  for  children  with  severe 
disabilities.  New  support  services  for  specialized  foster  families  will  be  introduced  in 2026. 
Challenges persist, recruiting foster families, more focus on prevention, etc. 

Measures to support independent living and social integration of children leaving alternative 
care 

When the guardianship or foster care of a child in a foster family or childcare institution comes 
to an end, the municipality, in accordance with the rules, the child who has been left without 
parental care with housing and other assistance, even once the child has turned 18. A person 
maintains  the  right  to  unused  social  guarantees  until  they  turn  24.  Criteria  and  adequacy  of 
financial support are not described. 

Outreach and awareness raising 

Outreach measures are not described in the action plan nor report. Latvia uses a multi-layered 
approach  involving  local  social  services  and  NGOs.  In  2023-2025the  'Latvian  Family 
Barometer' surveys were conducted to monitor the implementation of the Action Plan, directly 
involving families and civil society. Furthermore, children's participation is ensured through 
specific consultative mechanisms within the 'Latvian Children's Welfare Network' to reflect the 
views of the target group in policy evaluation. 

Stakeholders’ involvement 

The action plan seems to have been consulted with the ministries, civil society. It is not clear if 
any consultations with the local level or children were carried out. There is no information on 
consultations on the biennial report. 

180 

 
 
 
 
 
 
 
 
 
 
 
 
 
LITHUANIA 

Identification of children in need  

The ECG action plan identifies children in need and reports the size of groups of children in 
need  experiencing  specific  disadvantages  (e.g.  number  of  children  in  alternative  care).  It 
addresses the disadvantages hindering groups of children in need to access the services covered 
by  the  ECG  (e.g.  transport  barriers).  Yet,  the  barriers  faced  by  some  specific  groups  (e.g. 
children with a migrant background) are less addressed. 

Free and effective access to early childhood education and care (ECEC), age 0-3 

Addressing the financial barriers 

While the ECEC participation rate of children in the age group 0-3 years is growing, regional 
differences remain. In 2025, additional € 3.3 million was allocated to municipalities to cover 
education,  meals  and  transport  for  vulnerable  children.  In  2025,  Lithuania  introduced  the 
Childcare Compensation Benefit, which amounts to € 364 per month and is granted for each 
pre-school-aged  child  who  does  not  attend  an  early  childhood  education  and  care  (ECEC) 
institution and is instead cared for, for remuneration, by a qualified individual childcare provider 
(nanny) working under an individual activity certificate or an employment contract. 

Addressing the non-financial barriers 

According  to  the  ESPAN  report  (2023),  the  lack  of  available  places  and  waiting  lists,  the 
geographical  disparities,  as  well  as  the  cultural  and  personal  perceptions  and  attitudes  form 
barriers. 

Measures to support inclusive education and avoid segregated classes  

According to the 2025 Eurydice report, children with special educational needs or disabilities 
benefit  from  eased  access,  assignment  of  specialized  staff,  and  reduced  group  sizes.  Eased 
access is offered also to children from migrant backgrounds, and those at risk of poverty or 
social exclusion. However, the availability of support measures is quite fragmented. 

Free and effective access to ECEC, age 3-school 

Addressing the financial barriers  

EU  funds  will  be  used  to  cover  the  educational  costs  (including  non-formal  education  of 
children, educational materials and other means, meals and transport costs) of children who are 
educated  according  to  pre-school  or  pre-primary  education  programs  (including  compulsory 
pre-school  education)  and  grow  up  in  families  experiencing  social  risk,  thus  ensuring  the 
maximum early inclusion of children in the education system. Childcare Compensation Benefit 
applies (see above). 

Addressing the non-financial barriers  

A 2021 study by UNICEF shows that lack of transportation is the second most significant barrier 
to accessing ECEC in Lithuania, just after the cost. 

Measures to support inclusive education and avoid segregated classes  

The  ‘Education  Development  Program’  for  2021-2030  sets  as  target  for  2030  that  97%  of 
children with special educational needs and 75% of children with disabilities will attend general 
rather  than  specialized  educational  institutions.  Preferences  for  vulnerable  children  under  3 
years of age described above - based on the 2025 Eurydice report - apply also for children aged 
3 years to mandatory school age. 

181 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Free and effective access to education 

Measures to prevent and reduce early school leaving, incl. personalised guidance 

Early school leaving was at 8.4 %, having spiked from 4.8% in 2022, but is still slightly below 
the EU average of 9.3% (Eurostat, 2024). 

Measures to support inclusive education and avoid segregated classes  

EU  funds  will  be  used  to  cover  the  educational  costs  (including  non-formal  education  of 
children,  educational  materials  and  other  means,  meals,  educational  support  services,  free 
access  to  other  forms  of  non-formal  education  for  children,  including  by  compensating  the 
education fees set by municipalities, and transport costs) of children who are educated according 
to pre-school or pre-primary education programs (including compulsory pre-school education) 
and grow up in families experiencing social risk, thus ensuring maximum early inclusion of the 
children in the education system.  

Provision of free school materials (incl. digital equipment)  

Textbooks are provided free for all children, but other materials have to be purchased by parents. 
IT  equipment,  sports  equipment  or  musical  instruments  are  not  requested  by  the  school. 
According to the ESPAN report, around 42% of low-income households in Lithuania find it 
very or moderately difficult to cover the costs of education. Still, the share of children AROPE 
living in household reporting great difficulties to pay for formal education is lower than the EU 
average. 

Free transport 

Transport  costs  (yellow  school  buses)  to/  from  school  are  free  for  all  children  who  live  in 
villages and small towns more than 3 kilometres away from school. The same provision applies 
to  children  subject  to  compulsory  pre-school  education  or  attending  pre-primary  education 
programmes  who  live  more  than  3  kilometres  away  from  the  nearest  educational  institution 
providing pre-school and/or pre-primary education. Public transport subsidies apply to all other 
children. 

Free healthy meal each school day 

ECEC  

Children in ECEC (before the pre-school stage) who are from families experiencing social risk 
and participate in pre-school or pre-primary education programmes under the Child Guarantee 
or are subject to compulsory pre-school education are provided with free full-day meals from 
birth  until  entry  into  primary  education.  Children  from  such  families  attending  pre-primary 
education programmes under the Child Guarantee also receive free full-day meals until the start 
of primary education, while children attending pre-primary education programmes who are not 
from families experiencing social risk are provided with free lunches. 

Primary schools  

Lunch  is  free  to  all  children  in  1  and  2  grades.  Pupils  from  low-income  families  who study 
according to primary curricula 3 and 4 grades have the right to free lunch, if the monthly income 
per  family  member  is  less  than  1,5  State  Supported  Income.  Taking  into  account  the  living 
conditions of families, pupils may be provided free meals also in other cases specified by the 
Law. 

182 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Secondary schools  

Children in need in secondary schools (except for pupils who attend both general education and 
VET  programs)  each  school  day  are  provided  at  least  one  free  healthy  meal  if  the  monthly 
income per family member is less than 1,5 State Supported Income. Taking into account the 
living conditions of families, pupils may be provided free meals also in other cases specified by 
the Law. 

Free and effective access to school-based activities 

Equal and inclusive access to school-based activities, including participation in school trips and 
sport, leisure and culture 

The state allocates a voucher of € 15-20 for one non-formal education activity per pupil. The 
amount of the voucher is determined by a municipality, so the amount may differ in different 
municipalities. Two vouchers are allocated per pupil with special educational needs. The LT 
share of children AROPE who lack access to school-based activities is among the lowest in the 
EU.  The  Children  Day  Care Centers  provide  a  day  social  care  service  aimed  at  developing, 
maintaining and restoring the social and daily living skills of children, as well as supporting 
their family members. These services are provided in 58 municipalities across Lithuania. The 
duration of service provision is determined based on the individual needs of the child but may 
not be less than 16 hours per month, ensuring a minimum level of regular support. 

Framework for cooperation to provide after school care and opportunities to participate in sport, 
leisure and culture 

The  schools  and  municipalities  cooperate  with  non-governmental  organisations,  open  youth 
centres to strengthen educational work with families raising children from birth to compulsory 
education and carry out joint activities to reduce the social exclusion of Roma children (through 
various  activities,  trainings,  sporting  events  involving  children  of  different  nationalities, 
including Roma). 

Free and effective access to healthcare 

Measures to facilitate early detection and treatment of diseases and developmental problems? 

General neonatal screening covers 12 rare diseases. Preventive health check-ups for pregnant 
women and children are free of charge. Health care for pregnant women, mothers and newborns 
is free of charge. The health screening programmes cover the entire period until 18th birthday.  

Childhood vaccines recommended by the WHO 

Children receive free vaccinations against 14 diseases. Vaccination is easily accessible through 
primary  healthcare  institutions.  Family  doctors  actively  monitor  children’s  vaccination 
schedules but there are some gaps in coverage rates. 

Measures to facilitate early detection and treatment of mental health problems 

Since  July  2025  outpatient  mental  health  care  services  for  children  are  delivered  by  a 
multidisciplinary team composed of a child and adolescent psychiatrist, a clinical psychologist, 
a  mental health  nurse,  and/or  an  art  therapist  and/or  a  social  worker  and/or  a  case  manager. 
Referral is not required when applying to mental health centres, and all children and adolescents 
are entitled to access these mental health centres directly, in the same manner as when accessing 
services provided by family doctors or paediatricians. All such services are provided free of 
charge. 

183 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Free prescription medicines 

Some prescribed medicines are  free of charge for all children. These medicines are used for 
treatment  of  such  diseases  as  tuberculosis,  diabetes,  epilepsy,  asthma,  blood  coagulation 
disorders, etc. and indicates which drugs are reimbursed for their treatment. However, there is 
another list - called List B of subsidised medicines, which contains several types of medicines 
other than List A that are reimbursed for low-income children. No information on the number 
of AROPE children. 

Provision of targeted rehabilitation and habilitation services for children with disabilities  

During preventive check-ups, the psychomotor development of children under 4 years of age is 
checked, and if developmental delay is detected, they are referred for consultation with a social 
paediatrician  and,  if  necessary,  early  rehabilitation  is  prescribed.  Free  early  rehabilitation 
services were provided by 56 personal healthcare institutions in 2024, and by 63 in 2025. In 
2024, the number of children receiving early rehabilitation services increased by +27.6 percent 
compared to 2023. However, the number of free early rehabilitation services remains limited. 

Health promotion and disease prevention programmes targeting children in need  

The  ‘National  Progress  Plan’  for  2021-2030,  includes  actions  on  increasing  health  literacy, 
availability of sports activities and improving mental health services. Annual social information 
campaigns on the most relevant topics for children and young people, on the use of psychoactive 
substances,  methodological  publications  and  training  for  professionals  are  organised.  The 
incidence of smoking among children with low family affluence aged 13 years is high. Public 
health specialists work in schools and provide public health promotion services in accordance 
with an established list.  

Healthy nutrition 

Access to healthy nutrition outside of school  

Publicly funded measures supporting access to healthy meals are usually aimed at all children, 
or are intended for certain groups of children, such as children from large families, children 
with disabilities, children living in rural areas. One of the measures aimed at large families and 
those  raising  children  with  disabilities  is  the  “Family  Card”  (Lith.:  Šeimos  kortelė),  which 
guarantees discounts on meals, other goods and services provided by partner organisations. 

Limited advertisement and availability of unhealthy food  

To restrict advertising and limit the availability of foods high in fat, salt, and sugar in preschool 
and other educational institutions, the Meal Procedure Description includes a list of prohibited 
foods, which includes items high in fat, salt, and sugars. Additionally, it specifies the allowable 
amounts of salt and sugar in food products and dishes provided to children. 

Combatting homelessness  

Provision  of  adequate  accommodation,  prompt  transfer  from  temporary  accommodation  to 
permanent housing, and relevant social and advisory services 

Legislation requires that child rights protection services and/or the police be informed of any 
child  found  without  a  place  of  residence,  and  that  such  a  child  be  accommodated  in  a  safe 
environment.  No  information  on  the  deadlines  for  provision  of  emergency  and  permanent 
accommodation. 

184 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Measures to prevent the risk of homelessness among families with children 

According to the action plan, in order to avoid the risk of homelessness, if the rental contract 
for social housing is to be terminated in certain cases provided for by the Law on Support for 
Housing Acquisition or Rental, before the eviction of a person or family who does now own 
any other housing unit, the municipal administration plans and organises the provision of social 
services by helping the person or family to find other accommodation or by providing assistance 
to rent a housing unit and obtain reimbursement of part of the housing rental costs if this person 
or family is unable to find accommodation independently. Single-parent families receive higher 
housing benefits. 

Effective access to adequate housing 

Measures to address energy poverty of families with children 

According  to  the  action  plan,  affordable  housing,  energy  poverty  reduction,  and  accessible 
housing  for  people  with  disabilities  (including  children  with  disabilities)  are  among  the  key 
objectives  of  the  National  Progress  Plan  for  2021-2030.  According  to  ESPAN  report,  low-
income  households  with  children  and  individuals  are  entitled  to  means-tested  housing 
allowances/reimbursements for heating, hot water and drinking water, social housing and partial 
rent compensations. 

Social housing for families with children  

According to the 2024 progress report, the rental housing market in many municipalities is not 
sufficient for large families. In the 2021-2027, EU structural funds invest in development of 
social  housing  stock  for  families  with  three  or  more  children  and  persons  with  disabilities, 
aiming to shorten the waiting period for these groups to 3 years. The regional development plans 
allocate € 128 m  for  the  expansion  of  the  social  housing  from  EU,  national  and  municipal 
budgets.  By  2029,  the  new  social  housing  should  accommodate  3,850  persons.  In  some 
municipalities, single-parent families enjoy preferential access to public housing. 

Good alternative care standards 

Measures  to  ensure  that  the  best  interests  of  the  child  as  well  as  their  overall  situation  and 
individual needs are considered when placing them in alternative care 

Lithuania has explicit legal provisions and processes to ensure that the best interests of the child, 
their  overall  situation,  and  individual  needs  are  taken  into  account  when  placing  them  in 
alternative care. These protections are grounded in both the Law on the Protection of the Rights 
of the Child, Civil Code of the Republic of Lithuania and in Regulations for the Organisation 
of Child Foster Care. Lithuania has established several legal measures to ensure that the child’s 
best  interests  are  central  to  decisions  about  alternative  care;  the  foster  parents’  selection 
considers  the  child’s  individual  needs  and  context;  the  foster  parents  are  evaluated  against 
defined criteria; the placement preferences prioritise family and family-like environments. 

Measures to ensure the transition of children from institutional care to quality family-based care 

The share of children in residential care among children in alternative care is among the lowest 
in the EU. The last large-scale institutional care facility of the old type was closed in Lithuania 
in  December  2024.  As  a  result,  no  such  institutions  are  currently  operating  in  the  country. 
Lithuania  has  strengthened  both  the  financial  and  non-financial  support  measures  for  foster 
parents and adoptive parents to increase the availability of family-based foster care placements. 
In order to support foster families, professional foster families and adoptive  families, Foster 
Care Centers (66 in total) have been established across Lithuania, with at least one Foster Care 
Center operating in each municipality.  

185 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
Measures to support independent living and social integration of children leaving alternative 
care 

Based on the Progress Report, there is a supporting service for young people leaving institutions, 
facing social risks or living in families facing social risks, which must help adapt to the social 
environment and develop the capacity to deal with emerging social and other challenges. An 
independent living plan must be drawn up and reviewed together with the young person, taking 
into account their individual needs and their level of autonomy. Yet, this service is not available 
in  some  municipalities.  Both  financial  and  non-financial  support  are  available  to  children 
leaving care (care leavers). 

Outreach and awareness raising 

The  action  plan  and  the  progress  report  feature  several  communication/awareness-raising 
actions (e.g. dissemination of informational leaflets). Yet, a more active outreach to children in 
need is lacking.   

Stakeholders’ involvement 

Various stakeholders were consulted for the design of the action plan and its implementation 
(through a Council), including children’s representatives and NGOs. 

186 

 
 
 
 
 
 
 
 
 
 
 
 
LUXEMBOURG 

Identification of children in need  

The action plan operationalises the notion of the risk of poverty or social exclusion by linking 
it  to  the  main  risk  factors  (single-parent  or  large  family,  unemployment,  and  migration 
background) and adds to the target group of ECG several specific kinds of disadvantage. The 
first  progress  report  provides  update  on  the  size  and  composition  of  the  target  group  and 
discusses the key risk factors. In March 2025, the early detection system for special needs was 
revised with a focus on equity and inclusion. 

Free and effective access to early childhood education and care (ECEC), age 0-3 

Addressing the financial barriers 

There is no legal entitlement to publicly funded childcare for children under 3, but approved 
settings  offer  20  free  hours  weekly  (46  weeks/year)  for  all  children  aged  1  to  4  years.  The 
childcare voucher (CSA) further reduces costs based on income, family size, and child age, by 
adding free hours: 34/week for minimum-income families, and 13, 8, or 3/week for households 
earning up to 3.5 times the minimum wage. As of 2026, billing is simplified, targeted relief to 
households  earning  less  than  3.5  times  the  social  minimum  wage  is  extended,  and  parental 
assistants are included in the free 20-hour scheme. 

Addressing the non-financial barriers 

The number of available places in childcare is higher than that of the Childcare Service Voucher 
(CSA)  beneficiaries.  However,  lack  of  places  in  some  local  areas,  staff  shortages,  linguistic 
obstacles, and administrative complexity continue to pose barriers to accessibility by vulnerable 
groups.  Access  to  public  childcare  for  children  in  need  is  not  guaranteed.  A  study  of  the 
beneficiaries of the childcare vouchers by income level will be launched and will provide some 
elements of reply to this question. The 2026 reform of CSA simplifies administration. Linguistic 
accessibility  is  being  improved  by  requiring  all  CSA  offices  to  provide  information  in 
Luxembourgish, French, German, and English. 

Measures to support inclusive education and avoid segregated classes  

According to the 2025 Eurydice report, specialised staff is assigned for children with special 
educational  needs  or  disabilities.  Additional  funding  to  improve  physical  accessibility  and 
special allowance for children with special educational needs or disabilities may be requested. 
A home intervention service is available for children under 6 years who have or are at risk or 
are at risk of developmental delays. 

Free and effective access to ECEC, age 3-school 

Addressing the financial barriers  

Compulsory education starts at the age of 4, provided the child has reached the age of 4 before 
1 September of the school year. Between the age of 3 and the age of compulsory schooling, a 
child may either attend public preschool (éducation précoce), which is available from the age 
of 3, and/or be cared for in a childcare setting. Preschool is free to all. Children who attend a 
childcare education on a part-time basis and care service  benefit from the childcare voucher 
programme (10 free hours per week).  

187 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Addressing the non-financial barriers  

The total number of available places in childcare is higher than that of the beneficiaries of the 
childcare vouchers. In childcare settings, lack of places in some local areas, linguistic obstacles, 
and administrative complexity may pose barriers to accessibility by vulnerable groups. Access 
to public childcare for children in need is not guaranteed. Research shows that poorer children 
are less often enrolled in optional preschool education from the age of 3, than children from 
more fortunate backgrounds. 

Measures to support inclusive education and avoid segregated classes  

According to the 2025 Eurydice report, specialised staff is assigned for children with  special 
educational needs or disabilities. Additional funding to improve physical accessibility is also 
available. No figures are available for the inclusion of children in the non-compulsory preschool 
education.  In  March  2025,  a  comprehensive  early  detection  system  focused  on  fairness  and 
inclusion was introduced. 

Free and effective access to education 

Measures to prevent and reduce early school leaving, incl. personalised guidance 

. 

The National Youth Service ensures preventive actions in schools and contacts school leavers 
to  assess  their  needs  and  reconnect  them  with  education,  training,  or  apprenticeships.  The 
guidance  units  in  high  schools  offer  tailored  orientation  classes  and  vocational  discovery 
placements  for  disengaged  youth.  For  students  aged  12+  with  significant  psychosocial  or 
academic difficulties, Centres for Socio-Professional Integration provide alternative schooling 
focused  on  socio-emotional  support  and  reintegration.  A  School  Mediation  Service  (SMS) 
supports  parents  and  students  in  the  event  of  problems  with  the  school.  The  extension  of 
compulsory  schooling  until  18  years  (entry  2026/2027)  should  allow  pupils  at  risk  of  early 
school  leaving  to  increase  their  chances  of  success.  After  excluding  re-enrollment,  the 
percentage of dropouts is 6.3% of the school population, lower than the EU average. 

Measures to support inclusive education and avoid segregated classes  

Measures to foster equality of opportunities include promotion of inclusive education and the 
development of the quality of the support system for students with special education needs, a 
large-scale  inclusion  program  for  students  with  special  needs,  modern  and  differentiated 
language learning, and a significant range of support courses. In March 2025, the early detection 
system for special needs was revised with a focus on equity and inclusion. Slightly less than 
half of students with special educational needs receive mobile specialised interventions within 
their own school, and just over half receive specialised schooling in separated classes situated 
in Centres of Expertise in Specialised Psycho-pedagogy. A One Stop Shop for Online School 
Inclusion was set up in 2025 to inform, advise and raise awareness among parents, pupils and 
professionals about the care of pupils with special educational needs. 

Provision of free school materials (incl. digital equipment)  

Compulsory  schoolbooks  are  free  of  charge  in  primary  and  secondary  education  and  in 
vocational training. Digital equipment is provided in the form of individual tablets for a rental 
fee of  € 50 per year (this can be reduced by € 30 for low-income families). There are no school 
uniforms, sport clothing is not provided nor subsidised. In secondary education, low-income 
households  with  children  can  apply  to  receive  a  low-income  household  subsidy,  which  is 
intended  to  cover part  of  the costs  related  to  schooling  and  to  provide  access  to  free  school 
meals.  The  annual  subsidy  of  € 731  to  € 1097  per  pupil  is  given,  depending  on  household 
composition and its net income. 

188 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
Free transport 

All  public  transport  is  free  in  Luxembourg.  In  addition,  school  transport  is  available  in  all 
communes for primary school pupils, and school buses are organised from all communes to the 
local secondary schools. Specialised transport and socio-educational support is also available 
for pupils with a fragile state of health or pupils with special educational needs. 

Free healthy meal each school day 

ECEC  

Meals are free for children of beneficiaries of REVIS or recognised as in precarious situation 
by the social office. The price for all other children varies according to the income of parents. 

Primary schools  

All children who attend fundamental/ primary education or its equivalent are entitled to free 
meals on every school day and regardless of their household's income (5 main meals per week). 
To  access  free  meals,  primary  school  children  need  to  be  enrolled  in  an  education  and care 
centre (SEA). Not all children in primary school and in need have a place in such a centre. 

Secondary schools  

Free meals are offered to all secondary students in precarious situations. This includes students 
who qualify for the “low-income household subsidy”, students receiving the “school retention 
subsidy”,  students  benefiting  from  international  protection  who  are  unable  to  return  to  their 
residence for lunch, students living in a SLEMO structure and Ukrainian students benefiting 
from temporary protection. However, as stated in the first progress report, the take-up is low: 
only 37% of entitled students. 

Free and effective access to school-based activities 

Equal and inclusive access to school-based activities, including participation in school trips and 
sport, leisure and culture 

A large part of the extracurricular music education courses in the municipal sector is free , and 
low-income  students  can  ask  for  full  reimbursement  for  what  needs  to  be  paid  for.  Some 
municipalities provide, upon request, subsidies for school trips to children from low-income 
families,  while  some  parents’  associations  also  have  social  funds  for  this  purpose.  The 
homework  supervision  for  6–12-year-olds  in  after-school  care  is  also  free.  Schools  and 
municipalities  provide  logistical  support  to  help  children  in  need  to  participate  in  activities.  
Free  sports,  discounted  cultural  access,  holiday  camps  charged  in  function  of  age,  and 
extracurriculars further support equity in education and leisure. While 12% of children AROPE 
are deprived from regular leisure activities (vs 3.5% of all children below 16 years old), access 
to school trips is much wider (only 3% of children AROPE cannot afford).  

Framework for cooperation to provide after school care and opportunities to participate in sport, 
leisure and culture 

There  is  no  defined  framework  for  the  cooperation  of  the  different  stakeholder,  however  in 
reality cooperation exist between the afterschool care centres, the National Children’s Office 
(ONE) and other organisations as needed. Opportunities to participate in extra-curricular sports 
exist for all at no cost.  The Psychosocial  and School Support Centre promotes student well-
being, mental health, non-formal education, and participation in schools. 

189 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Free and effective access to healthcare 

Measures to facilitate early detection and treatment of diseases and developmental problems? 

According to the EU monitoring framework, comprehensive (general health, hearing, vision, 
dental) free screening programmes are available for all children in need, discussed in detail in 
the first progress report. In addition, a new social paediatrics service has been implemented. 
The participation rates in the recommended health check-ups and screenings are above 90% in 
children under two years of age for whom there is a financial incentive. However, they fall after 
the second birthday. According to the Health Observatory, there is no formalised care pathway 
after positive screening. 

Childhood vaccines recommended by the WHO 

Since  long,  Luxembourg  has  recorded  very  high  (95%  to  99%)  vaccination  rates  against 
Diphtheria-Tetanus-Pertussis, Haemophilus influenzae B, Hepatitis B, Measles, Pneumococcal 
disease, Polio, and Rubella. 89% of one-year-olds are also vaccinated against Rotavirus, what 
is among the highest rates in the EU. 

Measures to facilitate early detection and treatment of mental health problems 

Children from low-affluence families are more likely to be in poor mental health (report feeling 
low more than once a week) than the general population. There are several services in place to 
facilitate detection and treatment of mental health problems, both in the school environment, 
and as part of the healthcare system. A national portal for mental health centralises information 
on  helplines,  treatment  centres  and  available  support.  Some  of  these  services  and  types  of 
outpatient care may have limited availability and extended waiting times. 

Free prescription medicines 

The  cost  of  children's  medication  is  largely  covered  by  the  National  Health  Fund,  which 
reimburses the eligible portion directly to the pharmacy, without parents having to pay upfront. 
The portion not covered by the CNS must be paid by the parents. 

Provision of targeted rehabilitation and habilitation services for children with disabilities  

There are eight specialised psycho-pedagogical centres, which promote inclusive education and 
provide support and assistance to children with disabilities. The numbers of interventions and 
beneficiaries are well monitored, but it is not clear whether all children with disabilities receive 
assistance. There are also a number of centres for children who deserve physical rehabilitation. 
Services for persons with disabilities are provided also by non-profit organisations accredited 
by the Ministry of Family Affairs, Solidarity, Living together and Reception of refugees. The 
National Action Plan for the implementation of the Convention on the Rights of Persons with 
Disabilities  2019-2024  (NAP-CRPD)  provides  for  specific  measures  to  strengthen  access  to 
education, care and appropriate support services. The next NAP-CRPD is under preparation. 

Health promotion and disease prevention programmes targeting children in need  

The action plan mentions “Let’s talk health” (“Parlons santé”) project, targeted at applicants 
and beneficiaries of international protection status, including minors. There is no information 
on the number of children in need who have participated. Likewise, there is no information on 
the number of beneficiaries of the social paediatrics scheme. Several health and social services 
provide  preventive  care,  social  support,  and  protection  for  vulnerable  children  and  families 
through  consultations,  home  visits,  and  specialised  interventions  for  abuse  or  psychological 
difficulties. 

190 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Healthy nutrition 

Access to healthy nutrition outside of school  

During school holidays, children from households earning less than less than 2 times the social 
minimum wage, who are enrolled in an education and care centre, are eligible for a free meal 
per  day.  The  social  grocery  stores  project  provides  support  to  families  in  financial  distress 
through  food  aid  and  basic  material  goods.  Access  to  these  services  is  facilitated  by  social 
offices and various associations involved in social work. The Allocation de la vie chère (Cost-
of-living  benefit)  is  available  to  low-income  households.  A  combined  allowance  will  be 
introduced in 2026 and is expected to cover the cost of the child for modest households. Dietary 
consultations for a defined list of pathologies, intolerances or allergies is reimbursed at 100% 
for those under 18 years of age. 

Limited advertisement and availability of unhealthy food  

With  the  food4future  project  in  school  restaurants,  healthier  options,  as  well  as  vegetarian 
options,  are  provided.  The  national  action  plan  “Gesond  iessen,  Méi  beweegen”  provides 
additional incentives for healthy eating. In March 2025, as part of the MENJE's Screen-Life 
Balance  campaign,  the  National  Youth  Service  launched  the  "GoodFoodLoop"  initiative, 
aiming  to  raise  awareness  among  young  people  about  a  healthy  and  balanced  lifestyle,  and 
physical activity.  

Combatting homelessness  

Provision  of  adequate  accommodation,  prompt  transfer  from  temporary  accommodation  to 
permanent housing, and relevant social and advisory services 

According to the 2024 homeless count, there are no homeless (ETHOS categories 1-3) children 
in  Luxembourg.  However,  the  ETHOS  typology27  of  homelessness  includes  many  other 
categories  for  which  there  are  elements  indicating  the  presence  of  children.  The  action  plan 
describes open housing structures which welcome youth aged 16 to 27 y.o., responding to their 
specific  needs  (sibling  groups,  unaccompanied  minors,  and  young  children  with  complex 
needs).  There  are  also  accommodation  structures  that  provide  various  forms  of  housing  to 
vulnerable households. In 2024, 2,282 minors were among the 5,642 people receiving support. 
Such  housing  is  transitory  and  depending  on  the  organisation  can  last  up  to  3  years.  The 
availability of emergency housing is limited, particularly in heavily populated municipalities. 

Measures to prevent the risk of homelessness among families with children 

The progress report lists rent subsidies, cost of living allowance, energy bonuses, and affordable 
public housing as measures to guarantee effective access to adequate housing for families with 
children in need. According to the 2024 progress report, waiting times are on average just under 
3 years. Data from the Housing Fund waiting list shows that, in March 2023, there were just 
over 5,500 applicant households (approximately 15,000 individuals). 

Effective access to adequate housing 

Measures to address energy poverty of families with children 

The  progress  report  points  to  low  incidence  of  energy  poverty  affecting  children  in 
Luxembourg.  In  addition  to  the  cost-of-living  allowance,  an  energy  bonus  (EUR 151.41  to 
€ 303.08 per month depending on the household size) is available, the means-test for which is 
above  the  Eurostat  risk-of-poverty  threshold.  In  2025,  the  energy  bonus  was  increased  to 
between € 600 and € 1,200 per month depending on the household size. The non-take-up rate is 
estimated  at  45%  but  the  report  stresses  that  children  are  more  likely  to  benefit  from  those 
measures than the general population. 

191 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Social housing for families with children  

According to the 2021 census, 10% of the population lives in reduced-rent housing. In 2025, 
around one third of children living in a household renting on the private market benefited from 
the rent subsidy and around one fifth of children living in a homeowning household with a loan 
benefited from the interest subsidy. In 2023, there were around 3.300 household with children 
on  the  waiting  list  for  affordable  public  housing  with  the  biggest  public  agency  (FL),  with 
waiting times (according to the  progress report) of ca. 3 years. Priority is given to the  most 
vulnerable; an amendment proposed in April 2025 would grant single-parent families an official 
priority in allocation. There is currently no data on the overall state of the housing stock and 
therefore the proportion of social housing available to families in need. According to the 2026 
Report, from mid-2026, the National Housing Register is set to centralise demand for and stock 
of affordable housing. 

Good alternative care standards 

Measures  to  ensure  that  the  best  interests  of  the  child  as  well  as  their  overall  situation  and 
individual needs are considered when placing them in alternative care 

The law of 16/12/2008 describes possible assistance measures for families to be provided in the 
best  interest  of  the  child,  including  psychological,  social  or  educational  support  within  the 
family.  Bill  No.  7994,  submitted  in  May  2025,  emphasizes  fewer  placements  and  more 
preventive  and  individualized  protection.  It  strengthens  parental  involvement  and  prioritizes 
support  for  the  family  of  origin  to  prevent  placement  whenever  possible.  The  bill  plans  to 
diversify educational, psychological, and social support, and to ensure greater participation of 
children and young adults themselves in decisions that affect them. The National Children’s 
Office  (ONE)  oversees  child  placements,  enhances  provider  training,  sets  quality  standards, 
manages  state  funding,  and  ensures  care  aligns  with  the  child’s  best  interests,  offering 
ambulatory, day-care, and residential support to prevent family separation. 

Measures to ensure the transition of children from institutional care to quality family-based care 

The action plan acknowledges the need of deinstitutionalisation of alternative care but stresses 
that it is a challenge. On 1 October 2025, 940 children were in institutional care and 583 children 
in foster families. Since 2023, a pilot project offers temporary, multi-phase support (stationary, 
semi-stationary,  ambulatory)  to  families  in  crisis,  aiming  to  prevent  placements  or  facilitate 
reintegration. Two facilities are being prepared for launch. 

Measures to support independent living and social integration of children leaving  alternative 
care 

As of 1 October 2024, there were 482 young adults in supervised accommodation under the 
Open Environment Housing Service  (SLEMO), which is a voluntary assistance measure.   A 
year  later  there  were  551  young  adults  benefiting  from  this  measure.  Those  numbers  are 
relatively high when compared to the number of children in alternative care. Depending on the 
shelters, the measure is available for young adults aged between 17-27. Young adults in SLEMO 
are provided with psychological, social or educational support according to an Individual Plan, 
which is validated by the ONE and is the subject of reports every 6 months. 

192 

 
 
 
 
 
 
 
 
 
 
 
 
 
Outreach and awareness raising 

In  several  instances,  the  action  plan  refers  to  outreach  and  awareness-raising  activities 
(communication campaigns, workshops, volunteering), which are linked to various measures 
listed in the plan (e.g. information on preventive and curative healthcare targeted at the most 
disadvantaged). Measures to make the general public aware of the services covered by the ECG 
are also in place. A publicity campaign (videos and posters) was launched by the Ministry of 
Family, Solidarity, Living Together and Reception (MIFA) in October 2025 to raise awareness 
about the social benefits available to low-income families (allocations vie chère, prime énergie, 
REVIS),  with  a  view  to  improving  the  low  uptake  of  social  benefits  by  families  in  need. 
Luxembourg  has  strengthened  its  support  offer  for  parents  at  national  level  through  the 
Eltereforum Service, launched in 2023. 

Stakeholders’ involvement 

For preparation of the action plan, a steering committee was established, including all relevant 
ministries.  There  is  no  information  on  consultations  with  local  authorities  and  civil  society 
organisations. Children have been consulted thanks to a  TSI  project conducted by UNICEF, 
before  submission  of  the  first  progress  report.  The  National  Action  Plan  for  Combating and 
Preventing Poverty (December 2025) was developed through extensive consultations with civil 
society,  human  rights  institutions,  and  advisory  bodies,  including  an  online  consultation.  It 
incorporated  input  from  people  with  lived  experience  of  poverty  through  a  partnership with 
ATD  Fourth  World  Luxembourg  and  received  scientific  support  from  LISER  to  ensure 
evidence-based guidelines. 

193 

 
 
 
 
 
 
 
 
 
HUNGARY 

Identification of children in need  

The action plan confirms that all children at risk of poverty or social exclusion belong to the 
target  group  of  ECG  intervention.  However,  being  entitled  to  a  regular  child  protection 
allowance appears as the key precondition for free access to the services covered by ECG. In 
2024, the respective income limit increased by approximately 36% (from 165% to 225% of the 
social reference base, and from 180% to 245% in the case of single-parent families or families 
raising children with disabilities), what contributed to closing the coverage gap. 

Free and effective access to early childhood education and care (ECEC), age 0-3 

Addressing the financial barriers 

According to the action plan, children who receive regular child protection benefits, live in large 
families, have a long-term illness or disability, are in temporary care, temporary foster care or 
children’s homes, in foster care or children in protective care and those, whose legal guardian 
has no income – are exempt from nursery fees. In 2021-2024, 70% of enrolled children attended 
for free. 

Addressing the non-financial barriers 

The ECEC  participation is low according to EU SILC data (16.5% in 2024 and only 14.4% 
among the children AROPE) and has not increased much in the last decade (respectively 15.4% 
and  12.1%  in  2015).  Hungary  supports  access  to  nursery  care  for  children  in  need  not  only 
through  exemptions  from  the  payment  of  fees,  but  also  by  implementing  numerous  legally 
regulated  measures  that  facilitate  admission  to  nurseries.  Nonetheless,  the  share  of  child 
population under 3 years of age for whom no day care was available in their place of residence 
was 12.5% in 2025. 

Measures to support inclusive education and avoid segregated classes  

Nursery  care  for  children  with  special  educational  needs  and  those  eligible  for  early 
development support is available in all types of nurseries until 31 August of the year in which 
they  reach  the  age  of  6  years.  According  to  2025  Eurydice  report,  there  is  an  explicit  non-
discrimination rule in admission policies in terms of nursery care. 177 Sure Start Children’s 
Houses support inclusive education of Roma children. In order to further strengthen territorial 
coverage, a call for proposal was launched at the end of 2025 with the involvement of EU funds, 
aiming at establishing and developing of additional 45–50 Sure Start Children’s Houses on a 
territorial basis.  

Free and effective access to ECEC, age 3-school 

Addressing the financial barriers  

Attendance at kindergarten is compulsory and free of charge for all children from the age of 3 
years.  For  majority  of  the  enrolled  children,  meals  are  free  of  charge  as  well.  There  is  no 
indication  of  hidden  costs.  The  local  government  of  the  child’s  place  of  residence  shall 
reimburse  the  costs  of  travel  to  the  kindergarten  providing  compulsory  education  and,  if 
necessary, shall provide an accompanying person for the child if the kindergarten is located 
outside the municipality. 

194 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Addressing the non-financial barriers  

Compulsory participation in childcare implies effective access by all children in need. While 
excess supply is observed at national level, in some municipalities the capacity of kindergartens 
might be insufficient. Between 2010 and 2025, nearly 2,000 kindergartens, comprising ca. 42% 
of childcare places, have been modernized and the number of kindergarten places increased by 
17,641. In the 2025/2026 school year, children are accommodated in 4,774 facilities, i.e. 173 
more than a year earlier. 

Measures to support inclusive education and avoid segregated classes  

The  action  plan  stresses  the  existence  of  legal  safeguards  to  ensure  the  right  to  free  and 
accessible education for all. If there are several parallel groups in a kindergarten, the difference 
between the ratio of socially disadvantaged children to the total number of children in the group 
and the same ratio in the parallel group may not exceed 25 pps. 78% of children aged 3 years 
receive  inclusive  education.  The  work  of  teachers  is  supported  by  a  special  methodological 
guide. 

Free and effective access to education 

Measures to prevent and reduce early school leaving, incl. personalised guidance 

An early warning and pedagogical support system to prevent early school leaving has been in 
place since 2016. The system identifies pupils at risk of dropping and provides tailored support 
to them, as well as to schools with many dropouts and low performance. The share of early 
leavers  from  education  and  training  was  10.4%  in  2024,  i.e.  above  the  EU  average,  with 
significant share of girls. A dedicated programme addressing early school leaving among Roma 
girls will be launched in 2026 

Measures to support inclusive education and avoid segregated classes  

To mitigate the risk of segregation, the boundaries of educational catchment areas are reviewed 
and  revised  if  necessary.  73%  of  pupils  with  special  educational  needs  receive  inclusive 
education  (including  in  VET  institutions),  and  82%  of  public  education  establishments 
accommodate  children  and  pupils  with  special  educational  needs.  The  number  of  special 
education teachers in public education is constantly increasing. 

Provision of free school materials (incl. digital equipment)  

The action plan and progress report stress free distribution of digital notebooks to disadvantaged 
pupils. Other reports mention coverage gaps, as some children in need are not informed that 
they can benefit from the scheme. However, Hungary assures that the commitment to provide 
at  least  90%  of  disadvantaged  pupils  with  personal  ICT  devices  was  fulfilled.  All  pupils  in 
grades 1-16 are entitled to free textbooks. Since 2019, the beneficiaries of the child protection 
benefit have been receiving a free school supplies package – a measure financed at 90% by the 
ESF+.  

Free transport 

All children enrolled in public education are  eligible for student tickets/monthly passes with 
50%  discount.  The  school  operator  shall  arrange  for  transportation  to  the  school  providing 
compulsory education. 

195 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Free healthy meal each school day 

ECEC  

Most  children  enrolled  in  daycare  and  pre-school  establishments  receive  free  meals.  The 
maximum threshold of family income under which its children are entitled to free meals is well 
above the EU-SILC at-risk-of-poverty threshold.  

Primary schools  

According to the action plan, 33.4% of primary and secondary school pupils benefit from free 
meals. This share is above the AROPE rate among children. However, the progress report states 
that  eligibility  for  free  meals  is  linked  to  that  for  regular  child  protection  benefit,  which  is 
means-tested.  The  income  limits  under  which  children  are  eligible  for  the  benefit  were 
significantly increased in 2024. 

Secondary schools  

According  to  School  Meals  Coalition  (“Assessing  the  current  state,  benefits,  and  exemplary 
models of school meal programmes in the European Union: a report following 19th meeting of 
child guarantee coordinators on school meals”) in secondary schools, free meals for low-income 
pupils  are  available  until  the  age  of  14  years.  According  to  the  2024  progress  report,  in 
secondary schools receiving a child protection benefit entitles to a 50% discount rather than 
fully free meal. 

Free and effective access to school-based activities 

Equal and inclusive access to school-based activities, including participation in school trips and 
sport, leisure and culture 

According  to  the  action  plan,  participation  in  school-based  education  is  free  for  multiply 
disadvantaged pupils  and for those  with  special  educational  needs.  Initiatives  in  the  field  of 
culture and sport aim to ensure that extracurricular activities reach as many children as possible. 
No details on participation by children in need provided. 

Framework for cooperation to provide after school care and opportunities to participate in sport, 
leisure and culture 

The action plan stresses that discounts for travel on public transport are available for children 
in need visiting museums. School trips by rail are free of charge on school days. 

Free and effective access to healthcare 

Measures to facilitate early detection and treatment of diseases and developmental problems? 

According to the EU monitoring framework, comprehensive (general health, hearing, vision, 
dental) free screening programmes are available for all children in need at post-natal, first years, 
and school years stages. The action plan and the first progress report provide details, how those 
and  other  preventive  measures  are  organised.  The  ESPAN  report  points  to  shortage  of 
paediatricians and the resulting long waiting times, which are a greater problem for low-income 
families. The government has taken various actions to address this challenge. 

Childhood vaccines recommended by the WHO 

Since  long,  Hungary  has had  very  high (99%)  vaccination  rates  against  Diphtheria-Tetanus-
Pertussis, Haemophilus influenzae B, Hepatitis B, Measles, Pneumococcal disease, Polio, and 
Rubella  as  well  as  Tuberculosis,  Varicella  and  Mumps  as  these  fall  under  mandatory,  age-
related  vaccination.  No  data  available  on  the  share  of  one-year-olds  vaccinated  against 
Rotavirus, as this vaccination is not mandatory. 

196 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Measures to facilitate early detection and treatment of mental health problems 

The  action  plan  stresses  the  role  of  school  health  services  in  prevention  of  mental  health 
problems. The quoted 2011 data indicate epidemic-level prevalence of mental illness among 
children aged 4 to 17 years. There is a mention of ‘Health Promotion Offices − Mental Health 
Centres’ but the information on the number of children who have used various health promotion 
programmes  is  not  collected.  The  incidence  of  feeling  low  among  children  with  low  family 
affluence aged 13 years is high. 

Free prescription medicines 

Certain  medicines  are  free  of  charge,  while  others  are  subject  to  a  higher  or  lower  rate  of 
subsidy. Different types of diseases and medicines prescribed by specialists fall into different 
subsidy categories. 

Provision of targeted rehabilitation and habilitation services for children with disabilities  

Several programmes, using diverse (re)habilitation techniques and processes are in place. There 
is no information on the share of children with disabilities who benefit from them. 

Health promotion and disease prevention programmes targeting children in need  

In response to § 8 (c) of ECG recommendation, the action plan describes ‘Health Promotion 
Office − Mental Health Centres’ and mandatory comprehensive school health promotion. There 
is  (neither  in  the  action  plan  nor  in  the  first  progress  report)  information  on  the  number  of 
beneficiaries of the first measure, while the latter measure is not targeted at children in need. 
The incidence of smoking among children with low family affluence aged 13 years is high. 

Healthy nutrition 

Access to healthy nutrition outside of school  

The first progress report describes the scheme for provision of the midday warm main during 
the summer break, and during the autumn, winter and spring breaks. 

Limited advertisement and availability of unhealthy food  

The 2024 progress report includes information on the ways of restricting availability of foods 
high  in  fat,  salt,  and  sugar  in  educational  establishments:  sales  of  food  subject  to  the  public 
health tax are prohibited in educational establishments and at events organised for pupils. The 
efficiency of those legal instruments is not assessed. 

Combatting homelessness  

Provision  of  adequate  accommodation,  prompt  transfer  from  temporary  accommodation  to 
permanent housing, and relevant social and advisory services 

As an update to the action plan, the Child Guarantee Coordinator has shared information on 
family  shelters  (ca.  4,000  places  available),  temporary  children’s  homes  (370  places  in  26 
institutions) and on HUF 250 m made available in 2023 to expand the capacity of temporary 
homes  for families  (10  flats).  The  numbers  seem  small  in relation  to  the  size  of  population. 
There  is  no  information  on  the  deadlines  for  placement  and  transfer,  nor  on  the  social  and 
advisory services. 

197 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Measures to prevent the risk of homelessness among families with children 

In 2024, the share of children AROPE living in households facing housing cost overburden was 
16.7%, below the EU average of 21.1%. There are various programmes providing affordable 
accommodation o families in need but their coverage seems small in comparison to the size of 
population. 

Effective access to adequate housing 

Measures to address energy poverty of families with children 

Decrees 494/2017 and 290/2022 provide for discounted gas prices for large families (3 or more 
children).  Separate  rules  of  consumer  protection  apply  to  electricity  and  water  markets. 
Consumers  with  special  social  needs  (as  well  as  consumers  with  disabilities)  can  request 
protected consumer status from the  service  provider, on the  basis of which they can request 
installment payment, deferred payment or prepaid metering device from the service provider. 
However, subsidies seem to be optimised for lower-middle class families, not the poorest ones. 
In 2024, the share of children AROPE living in households unable to keep home adequately 
warm was 22.6%, close to the EU average of 24.0%. 

Social housing for families with children  

The action plan and progress report do not include information on volume and rules of access 
to  social  housing.  The  Child  Guarantee  Coordinator  has  provided  information  on  several 
projects  for  urban  renewal  and  improvement  of  conditions  in  disadvantaged  settlements. 
According to the Coordinator, by June 2026, 670 families will have access to renovated social 
apartments  in  “catching-up  municipalities”.  Another  10  families  have  been  accommodated 
thanks to a grant to expand the capacity of temporary accommodation. This is little in relation 
to the size of population.    

Good alternative care standards 

Measures  to  ensure  that  the  best  interests  of  the  child  as  well  as  their  overall  situation  and 
individual needs are considered when placing them in alternative care 

The action plan puts emphasis on preventive actions and, in placement in alternative care cannot 
be avoided, calls for permanent adoptions over revokable foster care. The progress report points 
to  growing  number  of  adoptions,  while  there  is  no  information  on  the  individual  needs 
assessment  and  child’s  participation  in  decision-making.  In  order  to  resolve  the  placement 
difficulties of infants left in hospitals, an amendment that entered into force on 1 July 2024 no 
longer  requires  the  consent  of  a  parent  who  leaves  their  child  in  a  healthcare  institution 
immediately after the child's birth and does not report for the child within six weeks. Addressing 
the situation of these infants remains a priority and further measures are being developed. 

Measures to ensure the transition of children from institutional care to quality family-based care 

Most (66.8%) of children in alternative care are in formal family-based settings. The progress 
report  describes  measures  implemented  to  improve  foster  care  provision,  such  as  capital 
investments, financial support, hire of additional childminders for children with special needs. 
As stressed by Child Guarantee Coordinator, the financial incentives for foster parents (twofold 
increase of the basic fee) seem to bring results. As of 2026, the foster parent fee increased by 
100% to 118%. 

Measures to support independent living and social integration of children leaving alternative 
care 

Several measures – projects ‘Care for the Future’, ‘Take a Step!’, and home creation grant – are 
mentioned as addressing the situation of young people leaving alternative care. It is not clear 
whether the coverage by those measures is sufficient. 

198 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Outreach and awareness raising 

As explained by the Child Guarantee Coordinator, the outreach measures rely on the existing 
institutions  and  organisations,  such  as  Sure  Start  Children’s  Houses,  or  out-of-school 
educational institutions (tanoda). The numbers of children reached through those channels are 
duly reported, but concern mostly access to healthcare, with less attention given to other services 
covered by ECG. 

Stakeholders’ involvement 

In the ECG preparatory phase, consultation meetings were held with “Make Things Better for 
Children!”  committee  and  a  Working  Party  on  Children’s  Rights,  while  other  bodies  were 
consulted through written procedure. The consultation with “Make Things Better for Children! 
committee, the Working Party on Children’s Rights, the Interministerial Committee on Social 
Opportunities and Roma Affairs, with the monitoring committees of relevant EU projects as 
well as with a series of other organisations is continuous. 

199 

 
 
 
 
 
 
 
 
 
MALTA 

Identification of children in need  

Malta’s National Action Plan for the Child Guarantee 2022-2030 defines ‘children in need’ as 
persons under 18 years of age who are at risk of poverty or social exclusion, including those in 
households at risk of poverty, experiencing severe material and social deprivation, or living in 
households with very low work intensity. However, further identification of vulnerable children 
is missing.  

Free and effective access to early childhood education and care (ECEC), age 0-3 

Addressing the financial barriers 

Childcare services are free but not universal. Based on the progress report, in 2023, there was a 
significant increase, with 51.0% of children under 3 years attending formal childcare. However, 
this rate has since then decreased to 44,1% in 2024. Children (0–3) living in households with 
less than € 10,000 of yearly income are also eligible for the free childcare service, even if both 
parents are unemployed. Yet, only 18.4 % of children AROPE benefit as compared to the EU 
average of 25% (ESTAT, 2023).  

Addressing the non-financial barriers 

The  availability  of  childcare  services  outside  normal  working  hours  is  limited.  Some 
administrative policies and waiting lists may act as barriers for children who are not eligible for 
the free childcare scheme. When the parents’ separation procedures are  not completed, or in 
shared-custody situations involving an uncooperative partner, child’s access to free childcare 
may be compromised.  

Measures to support inclusive education and avoid segregated classes  

The  ESPAN  report  (2023)  highlights  the  general  inadequacy  to  provide  specialised  care  for 
children  with  severe  impairments.  There  is  no  information  regarding  qualified  teachers  and 
other professionals.  The education system is engaged in efforts to be inclusive and aims to 
provide all learners with accessible education through a conducive learning environment where 
processes are re-designed to respond to the learners’ needs and social realities. 

Free and effective access to ECEC, age 3-school 

Addressing the financial barriers  

All children between the ages of 3 to 17 have access to free education. There is no information 
on the degree to which collateral costs (meals, materials, transport) are covered. 

Addressing the non-financial barriers  

According to the action plan, discrimination and social  exclusion can be considered as non-
financial barriers to participation in early childhood education and care. It also  mentions that 
new  childcare  centres  will  also  start  operating  in new  localities.  The  ECEC  rules,  described 
earlier, also apply to the pre-school field. 

Measures to support inclusive education and avoid segregated classes  

According  to  the  progress  report,  specialised  programmes  (such  as  individualised  education 
plans, therapy sessions and adaptive technology use) and trained staff are in place to provide 
individualised  support,  fostering  equal  opportunities  for  academic  success  and  personal 
development. 

200 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Free and effective access to education 

Measures to prevent and reduce early school leaving, incl. personalised guidance 

The  ‘Way  Forward  2020-2030’  programme  recognizes  the  need  to  support  not  only  those 
students  who  are  currently  at  risk  of  leaving  school  early,  but  also  those  who  have  already 
dropped out, as well as their families and communities. Malta is at 9.6% as compared to the EU 
average of  9.3%  (Eurostat,  2024).  While  significant  progress  has  been  achieved  in reducing 
early school leaving, continued emphasis on targeted and integrated initiatives such as the FCSL 
Programme  remains  essential.  The  sustained  development  of  such  measures  is  necessary  to 
address persistent inequalities, support learners with complex needs, and ensure that a greater 
number  of  young  people  are  supported  not  only  to  remain  in  education,  but  to  successfully 
complete their learning pathways.  

Measures to support inclusive education and avoid segregated classes  

The National Strategy on the Rights of Disabled Persons aims to enhance accessibility to a wide 
range of educational resources, including books and learning materials, in accessible  formats. 
It  also  includes  provisions  for  training  individuals  with  disabilities  on  the  use  of  digital 
technology, thereby empowering them to fully participate in educational activities. Malta has 
adopted  the  ‘Education  in  Schools:  Route  to  Quality  Inclusion’  and  ‘A  National  Inclusive 
Education  Framework’,  which  underscore  the  right  of  all  students  to  access  an  inclusive 
education in environments that are  both equitable and accessible.  However, Malta’s system 
(including  the  latest  national  strategy)  is  still  based  on  “special”  school  and  classrooms  and 
support  teachers  are  not  enough,  as  well  as  measures  to  make  learning  in  the  “standard” 
classroom the norm. 

Provision of free school materials (incl. digital equipment)  

The action plan indicates that every child receives free reading books, adapted according to their 
age. Otherwise, free school textbooks are lent to all students in compulsory education. There is 
free Internet access in schools and dedicated Wifi access; provision of MS Office 365 and MS 
Teams to all primary school students; various initiatives in Artificial Intelligence (AI), such as 
a Data Warehouse; as well as continuous awareness and courses to teachers and children to 
harness specific digital skills. 

Free transport 

According to the progress report, the government provides transportation services free of charge 
for students attending Kindergarten or compulsory schooling (Primary to Secondary School) if 
they  live  more  than  1km  away  from  their  school.  Besides,  young  children  in  pre-primary 
education receive supervised care during their commute, ensuring their safety and well-being 
during the transportation. 

201 

 
 
 
 
 
 
 
 
 
 
 
 
 
Free healthy meal each school day 

ECEC  

The ESPAN report (2023) states that under scheme 9, eligible low-income children – whether 
in  ECEC,  or  primary  or  secondary  level  education  -  may  benefit  from  a  nutritious  lunch. 
Moreover, as indicated in the National Action Plan, children attending State Pre-Primary School 
whose  parents  are  employed or  studying,  are  given  the  opportunity  of having  a  free  healthy 
breakfast through the Breakfast Club service.  

Primary schools  

The ESPAN report (2023) states that under scheme 9, eligible low-income children – whether 
in  ECEC,  or  primary  or  secondary  level  education  -  may  benefit  from  a  nutritious  lunch. 
Moreover, as indicated in the National Action Plan, all children attending State Primary School 
whose  parents  are  employed or  studying,  are  given  the  opportunity  of having  a  free  healthy 
breakfast through the Breakfast Club service. 

Secondary schools  

The ESPAN report (2023) reminds (p.5) that under scheme 9, eligible low-income children – 
whether at ECEC, or primary or secondary level education - may benefit from a nutritious lunch. 

Free and effective access to school-based activities 

Equal and inclusive access to school-based activities, including participation in school trips and 
sport, leisure and culture 

These  activities,  integrated  into  the  daily  curriculum,  go  beyond  academic  subjects  to 
encompass spiritual, religious, and ethical experiences. By offering a diverse range of activities, 
schools aim to enrich students' educational prospects and unlock their full potential. Yet, 20% 
of  children  suffered  from  the  enforced  lack  of  access  to  leisure  activities  (in  %)  in  2021 
(Eurostat). 

Framework for cooperation to provide after school care and opportunities to participate in sport, 
leisure and culture 

The  action  plan  mentions  the  ‘National  Inclusive  Education  Framework’  designed  over  ten 
central themes and inviting schools to implement, review and commit towards inclusive policies 
and practices. This framework promotes the roles of the school leaders and educators in creating 
a nurturing and inclusive environment that supports learning for all, according to each child’s 
diverse  needs  at  school  and  in  cooperation  with  the  parents/primary  caregivers  and  other 
members  of  the  community.  Yet,  there  is  a  huge  fragmentation  of  educational  policies  and 
frameworks. 

Free and effective access to healthcare 

Measures to facilitate early detection and treatment of diseases and developmental problems? 

Free screening programmes are conducted at post-natal (only general health), first years (only 
general health), and school years stages (covering general health, hearing, vision screening), 
and (except for the post-natal stage) dental check-ups. The age limit is set at 11. There is no 
information in the Progress Report on how many children benefit from those screenings. 

Childhood vaccines recommended by the WHO 

The  action  plan  states  that  scheduled  free  vaccinations  are  provided  to  Maltese  and  EU 
nationals, infants, children, and adolescents up to 16 years. However, the vaccination rate for 
rubella is below the requested level. 

202 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Measures to facilitate early detection and treatment of mental health problems 

The  ‘National  Strategy  for  Mental  Health  2020-2030’  underscores  the  importance  of  early 
detection,  prevention,  and  promotion of  mental  well-being.  The  measures  target  all  AROPE 
Maltese and EU children aged 0-17 and all children in alternative care. Overall, children from 
low-affluence families are more likely to be in poor mental health (report feeling low more than 
once a week) than the general population. 

Free prescription medicines 

The action plan refers to the Social Security Act (Schedule V) outlining medicines which are 
provided  free-of-charge  to  all  patients  suffering  from  specified  chronic  conditions. 
Alternatively, a Schedule II document (known as ‘Pink Card’) allows children in alternative 
care, fostered children, and full-time students to access medicines from a restricted list for free. 
This covers all Maltese and EU children AROPE and those who need medicines and treatments 
for chronic conditions. 

Provision of targeted rehabilitation and habilitation services for children with disabilities  

The ‘National Strategy on the Rights of Disabled Persons’ and the ‘National Autism Strategy 
2021-2030’ aim to raise awareness, promote accessibility, and foster inclusion to enhance the 
well-being  of  children  with  disabilities,  with  a  particular  emphasis  on  early  detection  and 
intervention.  All  AROPE  children  with  disability  and  their  families  and  all  children  with 
disability in alternative care are targeted. However, Malta performs significantly worse than the 
EU average in preventing early leaving from education and training among young people with 
disabilities, with 36.6% of 18–24-year-olds with activity limitations leaving education early, 
compared to 24.6% at EU level. 

Health promotion and disease prevention programmes targeting children in need  

According  to  the  progress  report,  attention  is  given  to  disadvantaged  populations,  including 
families at risk of poverty  or social  exclusion. By  providing targeted support and resources, 
health promotion initiatives strive to address the unique needs and challenges faced by these 
individuals, ensuring equitable access to essential health services and information. All AROPE 
children aged 0-17 and their families, as well as all children of mothers with psychosocial issues 
are targeted. 

Healthy nutrition 

Access to healthy nutrition outside of school  

The  Ministry  for  Social  Policy  and  Children’s  Rights  (MSPC),  with  financial  support  from 
ESF+,  distributes  food  packages  containing  a  wide  variety  of  items  intended  for  household 
consumption, five times per year. The products are carefully selected to enable households to 
prepare  complete  and  balanced  meals.  As  a  result,  children  who  are  members  of  eligible 
households directly stand to benefit from these food distributions. 

Limited advertisement and availability of unhealthy food  

According to the National Action Plan, the “Whole School Approach to a Healthy Lifestyle: 
Healthy Eating and Physical Activity Policy” aims to limit the availability of products high in 
salt,  sugar  and  fats  and  to  ensure  that  clear  and  consistent  messages  about  food,  drink  and 
physical  activity  are  delivered  across  the  school  day.  Schools  are  required  to  prohibit  any 
promotions of fats, sugars and salts in relation to procurement of food for schools. 

203 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Combatting homelessness  

Provision  of  adequate  accommodation,  prompt  transfer  from  temporary  accommodation  to 
permanent housing, and relevant social and advisory services 

The  Housing  Authority  is  providing  a  number  of  schemes  to  assist  families  in  receiving 
adequate  accommodation, such as:  First  Rent and Deposit Scheme, which scheme provides 
immediate support for people, including families  experiencing homelessness, whose primary 
barrier to accessing the private rental sector is the lack of upfront funds for the first rent and 
deposit.  Social  Housing  supports  individuals  and  families  who  cannot  afford  to  purchase  or 
lease a dwelling in the private sector. Through this service, eligible applicants may request to 
be allocated a government dwelling, ensuring that low-income individuals and families have 
access  to  safe  and  affordable  housing.  Yet,  challenges  persist  in  addressing  the  growing 
affordability crisis. 

Measures to prevent the risk of homelessness among families with children 

According to the progress report, there is financial assistance to assist in rent payments targeting 
low-income families with children for them not to pay more than 25% of their income in rent. 
The benefit varies according to the annual income of the applicants, the household composition 
and  the  rent  being  paid  by  them.  These  schemes  and  incentives  aim  to  improve  housing 
affordability in Malta, thereby reducing the risk of homelessness, including among households 
with children. Yet, challenges persist in addressing the growing affordability crisis. 

Effective access to adequate housing 

Measures to address energy poverty of families with children 

According to the action plan, households in low-income brackets are assisted through several 
measures to address energy poverty. These include the two types of Energy Benefit, the Eco-
reduction scheme and financial schemes aimed at reducing energy and water consumption in 
low-income households through the replacement of old and inefficient appliances (p.47). 

Social housing for families with children  

As indicated in the ESPAN report (2023), the income threshold for eligibility to social housing 
is below the AROP threshold. Social housing is generally rented out unfurnished, which can 
constitute a financial barrier (p.27). The rent in social housing is subsidised up to 80% of value 
of the rent. In 2020 there were 2,105 applicants who had been waiting for at least two years.  

Good alternative care standards 

Measures  to  ensure  that  the  best  interests  of  the  child  as  well  as  their  overall  situation  and 
individual needs are considered when placing them in alternative care 

Children are placed in alternative care as regulated by Chapter 602 of the Laws of Malta. After 
the Courts of Malta confirm the Care Order and. thus the placement, a Review Board reviews 
the case every six months. In the meantime, a care plan is created for each and every child. 

Measures to ensure the transition of children from institutional care to quality family-based care 

The majority of children requiring alternative care in Malta are placed in foster care families or 
in community/residential homes. These homes offer a community and/or a family setting for 
children  to  live  together.  The  FSWS  supports  foster  care  through  dedicated  services  and 
expertise.  Additionally,  in  relation  to  foster  care,  the  Government  of  Malta  continues  to 
encourage  more  people  to  become  foster  carers,  through  dedicated  awareness-raising  and 
information campaigns. The Government of Malta is also in the process of launching a first-
ever national policy on aftercare for children in alternative care. 

204 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Measures to support independent living and social integration of children leaving alternative 
care 

The 2023 amendment to the Minor Protection (Alternative Care) Act  (Chapter 602, Laws of 
Malta) allows for individuals to remain in their alternative care placement until the age of 21 
years.  Children  approaching  the  age  of  leaving  alternative  care  are  supported  by  various 
services. Young adults leaving alternative care receive double the entitlement under the Housing 
Benefit Scheme, to further assist them in leading an independent life. Additionally, under the 
Housing Benefit Scheme, single people who previously lived in alternative care can enjoy the 
full subsidy in their household until the age of 28. 

Outreach and awareness raising 

There has been in recent years an increased focus on community-based and outreach initiatives 
in key strategies and action plans that target health, education, housing and social protection. 
Malta  has  consolidated  all  government  services  through  Servizz.gov  which  offers  an  online 
website,  a  dedicated  freephone  and  a  network  of  one  stop  shops  to  facilitate  accessibility, 
provide information and facilitates application procedures for the public. 

Stakeholders’ involvement 

Based on the National Action Plan, stakeholder engagement was ensured through consultation 
with the relevant ministries, consultation event with all stakeholders related to childhood during 
the third quarter of 2021 as part of the pre-consultation process of Malta’s Social Vision 2035, 
and a focus group with children to obtain direct detailed input and feedback from them. 

205 

 
 
 
 
 
 
 
 
 
 
 
 
NETHERLANDS 

Identification of children in need  

Living in a low-income family is the sole criterion for being considered a part of the ECG target 
group. The threshold, established according to the national statistical method, is below the one 
used by Eurostat for ascertaining monetary poverty. This approach focuses support at the most 
vulnerable but means that some children at risk of poverty or social exclusion do not qualify to 
benefit from ECG. The number of children in need is given in the action plan, but not in the 
progress report. 

Free and effective access to early childhood education and care (ECEC), age 0-3 

Addressing the financial barriers 

Childcare is not free of charge, but parents can receive  a reimbursement of up to 96% of costs, 
capped by an hourly rate and a monthly limit of 230 hours. The 2026 report notes that while 
childcare participation rose between 2022 and 2024, average provider rates during 2022–2025 
exceeded the maximum allowable hourly price. For families ineligible for standard childcare 
support but facing medical challenges, municipalities receive funding under the Social Medical 
Indication (SMI) scheme. The annual funding for this scheme is € 5.4 m until 2028 and € 10 m 
beginning in 2029. 

Addressing the non-financial barriers 

Staff shortages, affecting 59% of creches, were reported by ESPAN in 2023 and confirmed by 
Eurydice  in  2025.  In  2025,  there  were  56  vacancies  for  1000  jobs  (CBS)  and  a  forecasted 
shortage  of  6.900  workers  in  childcare  (ABF  Research).  Older  (2016)  research  quoted  by 
ESPAN shows that ECEC was unpopular among lower-income households due to perceived 
low quality, inadequate opening hours, and more access to informal care by relatives and friends 
who in lower-income groups are less likely to participate in the labour market. 

Measures to support inclusive education and avoid segregated classes  

No information. 

Free and effective access to ECEC, age 3-school 

Addressing the financial barriers  

For children aged between 3 and 4 years, same rules as for the 0-3 age group apply. From the 
age of 4, children transfer to primary school, which is free of (mandatory) charge. 

Addressing the non-financial barriers  

The ESPAN report highlights long waiting lists for childcare organised before and after school 
for children older than 4 years, partly due to the lack of staff.  Despite workforce growth (from 
98,100 in 2019 to 131,600 in 2025) demand remains unmet (2025 Eurydice report). To improve 
early  childhood  support,  the  SPUK  Promising  District  programme  (2023–2028)  allocates 
€ 152 m to disadvantaged areas, funding parenting support, pre-school expansion, and better 
transitions to primary school through staffing and training. 

Measures to support inclusive education and avoid segregated classes  

According to the 2025 Eurydice report, children with special educational needs or disabilities 
are  put  in  groups  of  reduced  size  and  receive  support  from  specialised  staff.  Children  with 
migrant  background  are  admitted  regardless  of  their  residence  status,  and  interpretation  is 
available  for  communication  with  parents.  Speech  therapists  and  family  engagement 
coordinators are available. 

206 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Free and effective access to education 

Measures to prevent and reduce early school leaving, incl. personalised guidance 

 // Local authorities, health services, job centres, and youth care agencies collaborate to tackle 
school dropout, with schools and municipalities required to submit a regional prevention plan 
every four years. Since 2023, the educational care experiment has allowed schools to flexibly 
adjust rules to better support at-risk pupils. By late 2025, it had helped 3,000 students stay in 
education, informing future policy. From January 2026, the From School to Sustainable Work 
law  requires  schools  to  improve  career  guidance  putting  unqualified  youth  on  structured 
pathways back into education or work, municipalities to provide tailored support, and makes 
regional cooperation mandatory. 

Measures to support inclusive education and avoid segregated classes  

Every school must have a charter that details what special needs it is equipped to address and 
belong  to  a  regional  consortium  collectively  covering  all  support  categories  with  targeted 
funding.  Additional  resources  go  to  schools  with  high  numbers  of  pupils  with  learning 
difficulties,  asylum-seeking  backgrounds,  or  Roma/Sinti  heritage.  In  December  2023,  the 
education  minister  launched  the  Digital  School  Action  Programme  to  ensure  children  with 
health-related absences can continue learning remotely.  

Provision of free school materials (incl. digital equipment)  

Books  and  teaching  materials  for  children  until  12  years old  are provided free of  charge  by 
schools. Schools can ask parents to purchase a laptop or ask voluntary contributions to provide 
digital teaching material, but an alternative solution must be provided if parents do not pay the 
contributions. The state-sponsored cooperative SIVON helps schools to obtain the necessary 
equipment and infrastructure for effective digital education in the classroom, as well as online 
and remote learning when necessary. 

Free transport 

Transport is provided or refunded for children with a structural handicap or no available school 
within a 6 km radius (the distance condition applies only to primary school pupils). Parents are 
asked for a fixed contribution if their joint income exceeds a threshold (EUR  28,176 /yr in the 
school year 2022-2023). 

Free healthy meal each school day 

ECEC  

All children who attend daycare (0-4 years old) receive one meal a day (plus snacks), the price 
of which is included in the tuition. The tuition is subsided up to 96% of a fixed hourly rate, 
depending on family income Municipalities could supplement this allowance. Most children 
who attend pre-school (Peuterspeelzaal) (2 to 4 years old) do so for are only half a day, so no 
meals are provided. As part of the 2025 prevention strategy, the Healthy Childcare programme 
has trained 1,900 coaches to foster better nutrition and wellness habits in early years settings. 

207 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Primary schools  

A free school meals programme is available for schools where at least 30% of students come 
from a low-income family. In addition, all schools for special primary education are eligible. 
Participating schools can organize a meal for their students at school (73%) or offer a grocery 
card to parents/guardians (27%). Over 220,000 pupils benefit, but there are children in need 
who do not receive school meals because their schools do not meet the criteria to apply for the 
programme. Through EU schemes, around 2,300 primary schools (400,000 pupils) receive three 
weekly  fruit/vegetable  portions  for  20  weeks,  while  600  schools  (75,000  pupils)  get  twice-
weekly milk, paired with nutrition education. Under the 2025 prevention strategy, 44% of Dutch 
schools  adopt  the  Healthy  School  approach,  and  69%  of  secondary  and  vocational  schools 
(1,247 sites) now run healthier canteens via the Nutrition Centre’s programme. 

Secondary schools  

The free school meals programme is the same for primary and secondary schools. 

Free and effective access to school-based activities 

Equal and inclusive access to school-based activities, including participation in school trips and 
sport, leisure and culture 

Schools are required to allow all children to take part in all activities they organise, including 
tutoring and school trips, regardless of whether parents have paid their contribution. However, 
the  ESPAN  report  highlights  that  about  40%  of  parents  are  not  aware  of  this  obligation,  so 
contributions still pose a financial barrier. Schools serving disadvantaged pupils receive extra 
funding  to  address  learning  gaps.  The  School  and  Environment  programme  (2022–2028) 
supports  after-school  activities—sports,  music,  and  literacy—for  179,000  pupils  at  1,200 
schools,  improving  well-being  and  skills.  Schools  can  also  fund  a  bridge  officer  (a  family 
liaison)  to  handle  non-educational  issues.  Currently  a  temporary  subsidy,  this  will  become 
permanent for vulnerable schools from 2029. 

Framework for cooperation to provide after school care and opportunities to participate in sport, 
leisure and culture 

According  to  the  action  plan,  central  government  and  municipalities  will  jointly  invest  in 
enrichment  activities  at  school,  such  as  extra  tutoring  and  activities  organised  jointly  with 
libraries, sports clubs and cultural organisations. 

Free and effective access to healthcare 

Measures to facilitate early detection and treatment of diseases and developmental problems? 

General health, vision and hearing screenings are conducted at post-natal and early years stages, 
general health also in school years. There is no information, on how many children in need who 
benefit from those screenings. As stressed in the first progress report, the basic set of statutory 
tasks of Child Health Services (JGZ) includes monitoring healthy development, reaching ca. 
95% of children under 4 years and 90% above 4 years. There is a nation-wide ‘first thousand 
days’ programme, Solid Start. 

Childhood vaccines recommended by the WHO 

In  2024,  the  vaccination  rates  against  Polio,  Diphtheria-Tetanus-Pertussis,  Hepatitis  B, 
Haemophilus influenzae B, Measles, Rubella, and Pneumococcal disease ranged from 88% to 
91%, i.e. were relatively low in EU comparison and below the levels recorded in 2021 (93% to 
95%).    Recent  expansions  include  rotavirus  vaccination (January 2024)  and  RSV  protection 
(from September 2025 for babies born after 1 April 2025). 

208 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Measures to facilitate early detection and treatment of mental health problems 

The  action  plan  highlights  the  Youth  Act,  which  tasks  local  authorities  with  supporting 
children’s  mental  health  through decentralised  care.  A  national  screening  at  age 14  assesses 
social-emotional  and  psychosocial  development,  while  youth  care  services  address 
psychological issues and disabilities. From January 2026, the Youth Availability Improvement 
Act strengthens provisions by requiring municipalities to collaborate regionally on specialist 
support, guarantee sufficient capacity, and meet operational standards. However, children from 
families with low affluence are much more likely to feel low. 

Free prescription medicines 

All children receive prescription medicines for free, there is no indication of hidden costs. 

Provision of targeted rehabilitation and habilitation services for children with disabilities  

In 2018-2021, Volwaardig leven programme promoted adjusting care to individual needs. In 
2022 the stress was shifted to increasing resilience of care organisations. As stressed in the first 
progress report, municipalities have primary responsibility for offering targeted rehabilitation 
and  support  services  for  children  with  a  disability.  The  number  of  children  with  disabilities 
benefiting from those services is not given. 

Health promotion and disease prevention programmes targeting children in need  

The Solid Start programme focuses on care and support for families in vulnerable situations in 
the  period  prior  to,  during  and  after  pregnancy.  In  November  2025,  the  Ministry  of  Health, 
Welfare and Sport sent the structural approach Solid Start with action agenda 2026-2030 to the 
House of Representatives. Local authorities are obliged to offer pregnant women and/or their 
families in vulnerable situations a prenatal home visit from child health services (JGZ). 

Healthy nutrition 

Access to healthy nutrition outside of school  

According to the ESPAN report, Dutch food policy has focused more on providing information 
and regulating food products and marketing to children than proving direct access to healthy 
meals. There are privately funded food banks, which receive some financial support from the 
government.  Since  2025  the  Dutch  foodbank  ‘Voedselbanken’  receives  money  through  the 
ESF+. 

Limited advertisement and availability of unhealthy food  

Despite an advertisement code, children are still exposed to advertisements of unhealthy foods 
through different channels (TV, online, packaging).  The Ministry of Health is working on a 
legislative  amendment  to  restrict  marketing  tactics  that  promote  unhealthy  foods  to  young 
audiences.  Adjustment  of  existing  tax  on  all  non-alcoholic  drinks  into  a  sugar  related  tax  is 
under consideration. 

209 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Combatting homelessness  

Provision  of  adequate  accommodation,  prompt  transfer  from  temporary  accommodation  to 
permanent housing, and relevant social and advisory services 

Community and women’s shelters are available for those who lose accommodation, including 
families with children. However, if the parents are considered as sufficiently self-reliant, they 
generally do not get access to the community shelters funded by the Social Support Act. The 
Ministry of Housing and Spatial Planning and the Association of Netherlands Municipalities 
have agreed that municipalities are primarily responsible to provide housing and support after 
evictions. Families with children have priority in the allocation of housing. According to the 
Dutch Lawyers Committee for Human Rights, homeless shelters in the Netherlands are not child 
friendly (response to the Call for Evidence). 

Measures to prevent the risk of homelessness among families with children 

The  action  plan  describes  actions  taken  to  prevent  and  combat  homelessness  (early 
identification of risks, including debts). Those are not targeted at families with children, but 
thanks  to  wide  social  housing  stock  and  prioritisation  of  access,  such  families  are  not 
particularly at risk.   Only 9.6% of children AROPE  faced housing cost burdens in 2024 (vs 
21.1%  EU  average),  though  4,062  homeless  children  (including  19  in  public  spaces)  were 
recorded in 2023–2025. The June 2025 amendment to the Strengthening the Management of 
Public Housing bill now prioritises families with children. To tackle rising youth homelessness, 
authorities are accelerating support and policy reforms for 16- to 27-year-olds. 

Effective access to adequate housing 

Measures to address energy poverty of families with children 

No information in action plan nor progress report. In 2024, 27.1% of Dutch children AROPE 
lived in households unable to keep home adequately warm  – this was an improvement since 
2023 (31.1%), but above the EU average of 24.0%. 

Social housing for families with children  

According to “State of Housing in Europe” report, the supply of public/social housing is high 
(2,300,050 units). This compares favourably with the number of children AROPE (ca. 518,000 
in 2024). The action plan flags government’s intention to accelerate the construction of new 
units to 100,000 per year, setting as goal for 2030 to provide access to pleasant and affordable 
home for everyone. Families with children have a priority access to accommodation. 

210 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
Good alternative care standards 

Measures  to  ensure  that  the  best  interests  of  the  child  as  well  as  their  overall  situation  and 
individual needs are considered when placing them in alternative care 

No information. 

Measures to ensure the transition of children from institutional care to quality family-based care 

In  2025,  the  share  of  children  in  residential  care  within  the  total  population  of  children  in 
alternative  care  was  47.8%,  i.e.  above  the  EU  average  of  40.9%.  No  references  to 
deinstitutionalisation in action plan nor progress report. 

Measures to support independent living and social integration of children leaving alternative 
care 

No information. 

Outreach and awareness raising 

No information. 

Stakeholders’ involvement 

The  Child  Guarantee  Coordinator  consulted  people  with  lived  experience  of  poverty  and 
stakeholder  organizations  on  the  targeted  groups  and  what  to  consider  in  application  and 
practice. 

211 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
AUSTRIA 

Identification of children in need  

The action plan stresses that poverty is prevalent among children in single-parent households, 
in households with three or more children, and in households affected by unemployment. While 
the incidence of the risk of poverty or social exclusion allows to estimate the size of the target 
group,  there  is  no  clarity  how  this  statistical  notion  would  be  transposed  into  operational 
identification of ECG beneficiaries. 

Free and effective access to early childhood education and care (ECEC), age 0-3 

Addressing the financial barriers 

Provision of ECEC falls within competence of federal provinces, with some granting free-of-
charge full-time ECEC (e.g. Vienna), while others require co-payments (e.g. Salzburg up to 
€ 400/month). Where fees are collected, they can be reduced in case of hardship. The progress 
report does not provide information on the take-up of childcare by children at risk of poverty or 
social exclusion, nor on intensity of participation (i.e. part- or full-time). 

Addressing the non-financial barriers 

The ECG action plan mentions a general shortage of human resources linked to insufficiently 
attractive working conditions. According to the 2026 progress report, Austria has strengthened 
early childhood educator training through several initiatives. Priority access is given to parents 
who work or are in training or education, and to children with a sibling in a public facility. In 
some cases, priority may be given to families facing a crisis situation. 

Measures to support inclusive education and avoid segregated classes  

While in some federal provinces only inclusive ECEC groups exist, elsewhere there are still 
integrative groups or groups for children with disabilities only. Technical aids for children with 
sensory, physical or communication disabilities are provided. The ECG national action plan sets 
a target of 80% of pupils with special educational needs in inclusive settings by 2030. Parents 
can choose whether their children are educated in mainstream or special groups. 

Free and effective access to ECEC, age 3-school 

Addressing the financial barriers  

The costs of services vary considerably between the federal provinces, with free access offered 
sometimes on half-days basis for certain age brackets, while in Vienna full-time ECEC is free 
of charge for all children. Nationwide, free access is provided only for children in the last pre-
school  year,  on  half-day  basis.  According  to  the  2026  report,  the  2025–2029  Government 
Programme aims to expand early childhood education through a new federal-Länder agreement 
(Art.  15a  B-VG),  effective  from  2027/28.  Key  reforms  include  a  second  compulsory 
kindergarten year and extended hours (from 20 to 30 weekly) for children needing language 
support, with federal funding secured. 

Addressing the non-financial barriers  

The  action  plan  mentions  a  general  shortage  of  human  resources,  linked  to  insufficiently 
attractive  working  conditions.  The  estimated  staff  shortages  by  2030  amount  to  ca  13,700 
persons if current quality is to be maintained and ca. 20,200 if it is to be improved. The early 
childhood educator training was strengthened in 2023 by adding a language support module. A 
new  bachelor  degree  in  elementary  education  launched  in  2025/26,  with  100  annual  funded 
places  from  2026/27.  A  broader  reform  is  being  negotiated  with  regions  to  improve 
competences and quality.  

212 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Measures to support inclusive education and avoid segregated classes  

While some federal provinces have fully integrated ECEC, elsewhere the integrative groups or 
groups exclusively for children with disabilities persist. Technical aids are provided. In the last 
two years before school,  linguistic support for children is strengthened. Academic programs 
aimed at preparing inclusive education teachers are being expanded. The action plan aims to 
have 80% of pupils with SEN in inclusive settings by 2030. 

Free and effective access to education 

Measures to prevent and reduce early school leaving, incl. personalised guidance 

The  action  plan  set  as  objective  for  2030  to  put  Austria  among  ten  EU  member  states  with 
lowest incidence of early leaving from education or training (ELET). By 2024, there has been 
no progress in this regard, ELET rate (8.1%) and Austria’s ranking (15th) staying at 2020 levels. 
A nation-wide youth coaching program provides guidance, support and case  management to 
young  people  at  risk  of  dropping  out.  However,  minor  asylum  seekers  are  excluded  from 
compulsory VET training, which increases their risk of early school leaving. 

Measures to support inclusive education and avoid segregated classes  

 The action plan’s 2030 education targets aim for 40% of pupils in all-day schools and 80% of 
children  with  special  needs  in  inclusive  settings,  supported  by  aids  for  disabilities.  New 
inclusive curricula (2025/26) align special and mainstream education, with mandatory Austrian 
Sign  Language  (ÖGS)  for  deaf  students  and  disadvantage compensation  guidelines  ensuring 
accessibility.  According  to  the  2026  progress  report,  multiple  measures  have  also  been 
introduced:  intensified  German-language  programmes,  orientation  classes  for  immigrant 
children, Roma mediators, refugee support, and vocational programmes. 

Provision of free school materials (incl. digital equipment)  

Books are free of charge with a per capita relief of € 113 per pupil in the 2024/25 school year. 
In the first year of secondary school all pupils get a digital device, and low-income children 
may be exempted from related co-payments. Each year, ca. 50,000 children from households 
receiving  social  assistance  (Sozialhilfe)  are  eligible  for  support  from  the  ESF+  project 
Schulstartklar! in the winter semester (€ 150 in digital vouchers for school-related items, take-
up rate ca. 95%), and the nationally financed Schulstartplus! in the summer semester (€ 150 in 
digital  vouchers  for  food,  clothing  and  hygiene  items,  take-up  rate  ca.  90%).  A  school start 
benefit of € 121.40 is paid without for each child aged 6 to 15, without application. 

Free transport 

Public transport between home and school is universally available for € 19.60 per year (€ 29.60 
as of 2026/27 school year). Pupils receiving family allowances are entitled to free journeys and 
travel allowances for transport between their place of residence and the school/training place. 
For pupils with disabilities, the minimum distance of two kilometres does not apply. 

Free healthy meal each school day 

ECEC  

Different  regulations  apply  in  different  federal  provinces,  but,  in  most  cases,  meals  are  not 
provided  for  free  to  low-income  children.  Since  2026,  € 20 m  per  year  are  spent  to  provide 
healthy snacks in kindergartens. In the case of full-time care, the monthly fee for meals in ECEC 
usually ranges from € 60 to € 120. Discounts or graduated rates can be offered by individual 
service providers. 

213 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Primary schools  

In school year 2024/25, almost a third (32.4%) of Austrian pupils attended a full-day school, 
thus benefiting from the compulsory school meal. In addition, about one in four pupils benefited 
from school afternoon care and would therefore also have been potential purchasers of a healthy 
school meal. Around 58 % of all schools (primary and secondary) offered full day service and 
thus a healthy school meal. 

Secondary schools  

All-day  schools  operate  also  at  the  secondary  education  level.  Consequently,  the  figure  of 
32.4%, representing the share of Austrian pupils attending a full-day school and thus benefiting 
from the compulsory school meal covers also secondary schools. 

Free and effective access to school-based activities 

Equal and inclusive access to school-based activities, including participation in school trips and 
sport, leisure and culture 

Schools  strive  to  offer  as  many  activities  as  possible  free  of  charge  and  specific  financial 
subsidies are available for low-income children. The ‘Effectively Grow’ programme scales up 
proven projects to combat child poverty, funding leisure activities and social skill-building (e.g., 
sports) for disadvantaged children. 

Framework for cooperation to provide after school care and opportunities to participate in sport, 
leisure and culture 

Free access to cultural sites for under-19s and Sportpasses for low-income children, ensuring 
participation in leisure and sports. Schools nationwide can access subsidised trips to Vienna, 
while the 2022–2030 National Disability Action Plan strengthens inclusive education through 
federal-provincial collaboration. To support holistic child development,  prevention chains in 
three regions connect health, education, leisure, sports, and social services from pregnancy to 
early adulthood, identifying and filling service gaps.  

Free and effective access to healthcare 

Measures to facilitate early detection and treatment of diseases and developmental problems? 

. 

 The Parent-Child-Passport programme offers free health screenings from pregnancy through 
age  5  yrs,  detecting  health  risks  and  monitoring  development.  Five  prenatal  and  five  early-
childhood exams are tied to childcare allowance eligibility, achieving near-100% participation. 
By October 2026, a user-friendly app/web portal will let parents view exam data, counselling 
results, and set reminders. A multilingual website will explain screenings and support services. 

Childhood vaccines recommended by the WHO 

Free  vaccinations  against  COVID-19;  Diphtheria,  Tetanus,  Pertussis,  Poliomyelitis, 
Haemophilus  influenzae  B,  Hepatitis  B;  Pneumococcal  disease;  Influenza;  HPV;  Measles, 
Mumps, Rubella; Meningococcal disease ACWY (partly); RSV; and Rotavirus are available for 
all  children  and  youth.  However,  the  vaccination  rate  for  the  combination  vaccine  against 
Diphtheria, Tetanus, Pertussis, Poliomyelitis, Haemophilus influenzae B, Hepatitis B (3 doses) 
is at 71 % for 1-year-old children and the vaccination rate for the combination vaccine against 
measles, mumps and rubella (2 doses) is at 77 % for 2-year-old children. No information on 
coverage by vaccines against Pneumococcal disease and Rotavirus. 

214 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Measures to facilitate early detection and treatment of mental health problems 

‘Healthy from the Crisis’ programme offers free mental health support to young people up to 
21,  helping  over  45,000  since  2023,  with  funding  extended  to  2027.  Free  quotas  for 
psychotherapy are available, but according to Eurochild, waiting times are excessive and access 
to psychotherapy and paediatric psychiatry is insufficient. From 2026, social prescribing will 
enable doctors to refer patients to community support for issues like loneliness or stress, and 
launch initiatives to strengthen social skills and media literacy, with EU support extending these 
efforts through 2028. 

Free prescription medicines 

Prescribed medicines are free for all children, but a prescription fee of € 6.85 must be paid. 
Low-income families and those who receive social benefits are exempt from this co-payment, 
but  the  eligibility  threshold  is  below  the  AROP  threshold  for  Austria,  meaning  that  not  all 
children in need qualify. On the other hand, the yearly total of prescription fees cannot exceed 
2% of income. 

Provision of targeted rehabilitation and habilitation services for children with disabilities  

“Inclusion of Children and Young People with Disabilities” appears as a special topic both in 
the action plan and the progress report, with many measures discussed. Inpatient rehabilitation 
for children and adolescents is part of the currently valid Austrian rehabilitation plan, which 
specifies the capacities and structural quality of inpatient rehabilitation centres for children and 
adolescents.  

Health promotion and disease prevention programmes targeting children in need  

The action plan commits to increase the share of children in very good (externally reported) 
health among those affected by poverty or social exclusion from 77.2% in 2021 to 80% in 2024 
and  82%  in  2027.  However,  in  the  2026  the  respective  share  is  just  58%.  General  health 
promotion measures are put forward in the context of school meals and healthy nutrition. The 
incidence of smoking among children with low family affluence aged 13 years is high. 

Healthy nutrition 

Access to healthy nutrition outside of school  

Access to nutrition outside school contexts is secured mainly by food banks and social grocery 
stores. Food provided by them is not necessarily healthy. From July 2026, VAT on staples (milk, 
bread,  fruit)  will  halve  to  4.9%,  saving  households  € 100/year—most  helping  low-income 
families. Projects like the Red Cross’s "Junior Tafel" and Tafel Österreich distribute rescued 
food  to  struggling  families,  with  special  focus  on  children  facing  poverty  and  exclusion. 
Nutrition education is an integral part of the curricula in elementary schools, secondary schools, 
all-day schools and general secondary schools. 

Limited advertisement and availability of unhealthy food  

There  are  no  comprehensive  rules  on  advertising  and  food  labelling.  In  order  to  reduce 
marketing to children for foods with a high level of energy, fat, sugar and salt, the ‘Austrian 
nutrient profile for managing life in media advertising to children in audiovisual media’ was 
adopted in 2021. 

215 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Combatting homelessness  

Provision  of  adequate  accommodation,  prompt  transfer  from  temporary  accommodation  to 
permanent housing, and relevant social and advisory services 

The action plan stresses that accommodation of children in temporary forms of housing should 
be  avoided,  and  quick  placement  in  long-term  secure  housing  promoted.  While  no  precise 
deadlines for placement and transfers are given, since 2024, Austria has been implementing the 
Housing First Principle. Empirical evidence shows that homeless women and children can be 
reached particularly well through the housing-led approach. 

Measures to prevent the risk of homelessness among families with children 

The WOHNSCHIRM programme (housing support) consists of three strands with a total budget 
of € 200 m until 2026: WOHNSCHIRM Miete, Energie, and Housing First. The action plan and 
progress report also refer to the WOHNSCHIRM Miete strand with the aim to prevent evictions. 
Underage children live in 44% of around 16,600 supported households. In 2024, the share of 
children  AROPE  living  in  households  facing  housing  cost  overburden  was  22.5%,  slightly 
above the EU average of 21.1%. 

Effective access to adequate housing 

Measures to address energy poverty of families with children 

WOHNSCHIRM  Energie  supports  households  at  risk  of  energy  poverty  that  are  facing 
disconnection of household energy services or where a disconnection has already taken place. 
Currently, around 150 households per month receive support through WOHNSCHIRM Energie. 
41% of all supported persons are children. In addition, the social tariff gives eligible households 
a capped and socially supported electricity price. This benefits almost 300,000 households in 
Austria, many of which also have children. 

Social housing for families with children  

In Housing Europe’s terminology, 24% of Austrian housing stock is considered social (i.e. 
limited-profit rentals and municipal housing). While there is no information about priority 
access for families with children, children make up 27% of tenants in this sector. In line with 
the action plan, the number of children and youth in households with housing cost overburden 
and severe housing is to be reduced by 50 % by 2030. 

Good alternative care standards 

Measures  to  ensure  that  the  best  interests  of  the  child  as  well  as  their  overall  situation  and 
individual needs are considered when placing them in alternative care 

The basis for any educational assistance, including full education (Volle Erziehung) in a social 
education facility or with foster parents, is a risk assessment, which serves to evaluate the risk 
to the child's welfare, and assistance planning, in which a structured social work process is used 
to select assistance (care facility, additional support for the child and/or family) and set goals 
for  a  possible  return  to  the  family.  Children,  young  people,  and  families  have  a  right  to 
participate in these processes. Assessments and decisions should be made in accordance with 
the dual control principle. According to civil society organisations, child welfare perspective in 
asylum procedures is insufficiently implemented 

216 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Measures to ensure the transition of children from institutional care to quality family-based care 

Full upbringing (Volle Erziehung) in a social education facility or with foster parents should 
only be used as a last resort, which is why children and young people often only come into care 
when they have complex behavioural problems that overwhelm foster parents and make them 
unwilling to take them in, despite training and support. There is also a shortage of foster parents, 
leading to placement of younger children in residential care. The share of children in residential 
care within the total population of children in alternative care (Volle Erziehung) is 61.7%, third 
highest in the EU. However, in most cases children are offered support in their natural families 
(Unterstützung der Erziehung, 45,313 cases vs 13,050 in Vollen Erziehung). 

Measures to support independent living and social integration of children leaving alternative 
care 

Provision  of  alternative  care  for  children  lies  within  the  competence  of  the  federal  states. 
Generally, support beyond the age of majority is available, based on individual agreements with 
young adults. 

Outreach and awareness raising 

Awareness-raising is mentioned several times in the action plan, focusing on children rights, 
inclusion of people with disabilities and of pupils with special educational needs, as well as on 
promotion of healthy lifestyles.  

Stakeholders’ involvement 

Consultations  with  various  stakeholders  are  mentioned  in  the  action  plan,  albeit  with 
administration better represented than civil society.  To protect and promote children's rights, 
the Children's Rights Board  (Kinderrechte-Board) has been established in Austria within the 
Federal  Chancellery/Family  and  Youth  Section.  This  is  an  interdisciplinary  exchange  and 
advisory body, organized by the Federal Chancellery's Children's Rights Department, in which 
a number of institutions and organizations dealing with children's rights are represented. At one 
of its regular meetings, the Children's Rights Board addressed the issue of economic and social 
inclusion and, in particular, the ECG. 

217 

 
 
 
 
 
 
 
 
 
 
 
 
 
POLAND 

Identification of children in need  

The ECG action plan identifies children in need and reports the size of groups of children in 
need experiencing specific disadvantages (e.g. estimate of number of homeless children). The 
ECG  action  plan  addresses  disadvantages  hindering  mainly  children  with  disabilities  and 
Ukrainian children’s access to the services covered by the ECG. Yet other groups of children 
in need are less addressed. The first biennial progress report suffers from the same shortcoming 

Free and effective access to early childhood education and care (ECEC), age 0-3 

Addressing the financial barriers 

The fees can be calibrated to family income, with some exemptions the scope of which varies 
across municipalities (e.g. free access to public crèches in Warsaw). In addition, further support 
is  provided  through  the  ‘Active  Parent’  programme.  As  a  result,  the  average  nursery  fee  in 
Poland amounts to € 20. No mention of free meals for children in ECEC, nor of free provision 
of transportation and educational materials.   

Addressing the non-financial barriers 

Target  to  establish  102,000  subsidised  care  places  (with  the  Active  Toddler  2022-2029 
programme), with a specific focus on areas with less childcare facilities, addressing geographic 
challenges. The Active Day Caregiver programme further supports creation of childcare spots 
in  ‘childcare  deserts’.  Wider  compliance  will  depend  on  the  implementation  of  the  project. 
Challenges related to ECEC staff training not reported/addressed. 

Measures to support inclusive education and avoid segregated classes  

While  the  education  system  demonstrates  commitments  to  inclusivity—such  as  WOKRO’s 
rehabilitation  support  for  over  20,000  pre-school  children  with  special  needs—gaps  remain. 
Shortages  of  special  education  assistants  persist,  and  there  is  little  evidence  of  large-scale 
policies to adapt facilities for children with disabilities. Early support is available for disabled 
children aged 0–3, from identification until school entry, delivered in public and private settings 
following a specialist assessment to confirm eligibility. However, broader systemic adaptations 
appear limited. 

Free and effective access to ECEC, age 3-school 

Addressing the financial barriers  

Compulsory ECEC for children over 6. For those below (from 3 to 6), legal entitlement to free 
access for first hours (more than 20). Meal at School and at Home programme provides support 
to  access  meals  yet  with  coverage  smaller  than  the  population  of  children  AROPE.  Some 
support to access free transportation  is granted in specific cases.   

Addressing the non-financial barriers  

While  provisions  for  children  with  disabilities—including  inclusive  education  and  specialist 
support  centres—have  been  prioritised,  unmet  demand  persists,  and  training  gaps  in  early 
childhood  staff  remain  unaddressed.  The  Ministry  of  National  Education  is  reducing  non-
financial barriers by mandating more specialist staff (psychologists, SEN teachers), increasing 
posts  from  46,600  (2023)  to  57,300  (2026),  and  extending  mental  health  support  to  private 
schools. Free teacher training, now in its third year, further strengthens inclusivity by upskilling 
educators to meet diverse needs. 

218 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Measures to support inclusive education and avoid segregated classes  

Poland has made progress in inclusivity, with policies like WOKRO supporting over 20,000 
pre-school  children  through  rehabilitation  and  qualified  special  education  teachers,  though 
shortages of assistants persist. However, participation gaps remain, as children at risk of poverty 
(AROPE) lag 10 percentage points behind their peers. In healthcare, all under-18s receive fully 
funded treatment via the National Health Fund, while mental health reforms focus on a three-
tiered, community-based system—expanding day centres, mobile teams and family therapy—
to reduce hospitalisations and deinstitutionalise care. 

Free and effective access to education 

Measures to prevent and reduce, incl. personalised guidance 

The  incidence of  early  leaving  from  education  and  training  in  Poland has  remained broadly 
stable  and  well  below  EU  average,  but  no  specific  measures  are    reported  within  the  ECG 
context. 

Measures to support inclusive education and avoid segregated classes  

The gap in rate of underachievement among disadvantaged and advantaged children is in Poland 
below  the  EU  average.  There  are  some  measures  to  promote  inclusivity  in  education  (e.g. 
specialised support to children with varied educational needs, bilingual education for the deaf 
pupils, financial support granted to more than 7,000 children from Ukraine). 

Provision of free school materials (incl. digital equipment)  

EU-funded  initiatives  have  developed  digital  educational  materials,  though  distribution 
challenges  for  digital  tools  remain  unresolved.  To  alleviate  costs,  funding  ensures  free 
textbooks, workbooks and materials for primary and arts school pupils, with local authorities 
responsible  for  provision  under  central government  direction.  However, broader policies  for 
other school supplies—such as stationery or devices—appear limited. 

Free transport 

Primary education: municipalities required to provide free transport if distance exceeds 3 or 4 
km. Municipalities are also required to provide free transport for students with disabilities to 
the nearest school.  But there  is a lack of similar measure  covering secondary education and 
other groups. 

Free healthy meal each school day 

ECEC  

Nurseries  can  offer  meals,  but  their  price  depends  on  the  fees  fixed  either  by  the  entities 
themselves (if private) or by communes (if public). Some support to pre-school children through 
the Meal at School and at Home programme. Yet there is scope for broader coverage  so all 
children in need in ECEC can freely access meals. 

Primary schools  

According to the report on the implementation of the "Meal at School and at Home" program, 
in 2024, 209,022 students (less than half of the number of children AROPE) were provided with 
assistance, in 2023 234,174, in 2022 - 236,013 students, and in 2021 - 255,770 students. Some 
broad quality standards to ensure use of health-promoting food are set. 

219 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Secondary schools  

Same as for primary schools. 

Free and effective access to school-based activities 

Equal and inclusive access to school-based activities, including participation in school trips and 
sport, leisure and culture 

The share of children AROPE lacking access to regular leisure and school-based (e.g. school 
trips) activities is in Poland below the EU average. Some measures are mentioned to further 
improve access of specific groups, e.g. children with disabilities (e.g. by increasing availability 
of infrastructure) and Roma children (e.g. support to after school activities). 

Framework for cooperation to provide after school care and opportunities to participate in sport, 
leisure and culture 

No information. 

Free and effective access to healthcare 

Measures to facilitate early detection and treatment of diseases and developmental problems? 

Poland  implements  measures,  such  as  coordinated  care  for  early  diagnosis  and  treatment  of 
severe dysfunctions in children. There is a wide range of screenings available for free until the 
age of 18 years. Yet there is lack of evidence as regards take-up rates. It also remains unclear 
whether  these  measures  will  suffice  to  lower  the  high  unmet  medical  needs  among children 
AROPE. 

Childhood vaccines recommended by the WHO 

Poland's implemented measures ensure children receive mandatory vaccinations. These aim to 
reduce unvaccinated rates – yet evidence suggests scope for progress in vaccination coverage. 

Measures to facilitate early detection and treatment of mental health problems 

Poland  has  introduced  a  new  child  mental  health  model,  establishing  461  community 
psychological  centres  to  provide  free  early  detection  and  treatment.  However,  accessibility 
challenges remain unclear, and concerns persist—Poland has one of the highest rates of children 
from low-affluence families reporting frequent low mood. The  Ministry of Health signed an 
agreement on 29 May 2024 with the Dajemy Dzieciom Siłę Foundation to create a dedicated 
support centre for young people in mental health crises. 

Free prescription medicines 

Children have access to free prescription medications as determined by the list of reimbursed 
pharmaceuticals set by the Ministry of Health, including essential drugs used in the treatment 
of childhood illnesses. Yet there is some evidence of limited coverage of the policy (e.g. with 
some medicines used to address childhood diseases co-funded up to 50 and 70%). 

Provision of targeted rehabilitation and habilitation services for children with disabilities  

Poland  provides  rehabilitation  and  education  for  children  aged  3–24/25  with  disabilities  via 
Ministry  of  Education  centres,  aligning  with  WHO’s  social-rehabilitation  goals,  though 
progress tracking is weak. Healthcare is universally accessible, with no diagnostic barriers, but 
better cross-ministerial coordination is needed. Programmes like "For Life" offer early support, 
rehabilitation, and family aid, yet unmet demand and overall effectiveness remain unclear. 

220 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Health promotion and disease prevention programmes targeting children in need  

Initiatives include early detection and coordinated care for diseases. Yet the implementation 
report  stresses  the  need  for  strengthening  health  promotion  and  preventive  healthcare  in 
kindergartens and schools, without providing detailed information on how this need will be met. 

Healthy nutrition 

Access to healthy nutrition outside of school  

There  is  some  evidence  that  Ukrainian  children  can  benefit  from  the  Food  Aid  Operational 
Programme if they meet a specific income criterion, like other children. In addition, access to 
healthy  nutrition  outside  of  school  is  also  supported  by  the  "Meal  at  School  and  at  Home" 
programme.  Higher  coverage  of  children  in  need  would  be  needed  to  achieve  higher 
compliance. 

Limited advertisement and availability of unhealthy food  

The 2026 Ministry of Health regulation imposes strict nutritional standards for schools, limiting 
salt, sugar and fat in foods sold on premises and setting advertising restrictions for products 
targeting under-12s—banning promotions of items not on an approved list. While it mandates 
healthier  meals  and  permitted  food  lists,  greater  clarity  on  compliant  products  is  needed  to 
ensure full adherence. 

Combatting homelessness  

Provision  of  adequate  accommodation,  prompt  transfer  from  temporary  accommodation  to 
permanent housing, and relevant social and advisory services 

In  February  2024,  children  accounted  for  5%  of  the  total  number  of  people  experiencing 
homelessness. A majority of them are estimated to be in centres such as homes for mothers with 
minor  children  and  crisis  intervention  centres.  Social  rent  agencies  (SANs)  have  been 
established to manage and rent housing, providing temporary solutions for those in need. 

Measures to prevent the risk of homelessness among families with children 

Poland's  measures  to  prevent  family  homelessness  include  support  to  enhance  social  and 
municipal housing, through e.g. the introduction of social rents, as well as in-cash benefits. Yet 
the Polish share of children AROPE in household facing housing cost overburden is below EU 
average. More information on solutions to prevent evictions would be welcome. 

Effective access to adequate housing 

Measures to address energy poverty of families with children 

Poland  addresses  energy poverty  through  the TERMO  program,  which  supports  the  thermal 
modernization of buildings to improve energy efficiency; yet the extent to which families with 
children in poverty benefit from such programme remains unclear. The Polish share of children 
AROPE living in household unable to keep their home adequately warm is the lowest in the 
EU. 

Social housing for families with children  

Poland plans to increase social housing, with 340 projects and 6375 units funded in 
2024.Amendments aimed at improving social housing access are implemented. Social Rental 
Agencies are intended to help by sub-letting flats to families in need, but not yet widely 
established, highlighting a need for continued development. Priority is often given to families 
with children, yet there is unmet demand, with long waiting time. 

221 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Good alternative care standards 

Measures  to  ensure  that  the  best  interests  of  the  child  as  well  as  their  overall  situation  and 
individual needs are considered when placing them in alternative care 

Poland  implemented  an  ICT  system  to  improve  children's  placements  in  alternative  care, 
ensuring  the  centralized  collection  of  information  to  assess  needs  and  support  placement 
decisions.  This  aligns  with  prioritizing  family-based  care  and  assessing  individual  needs. 
However, explicit measures for incorporating children's voices during placement processes are 
not detailed. 

Measures to ensure the transition of children from institutional care to quality family-based care 

Poland's measures to promote deinstitutionalization include reducing the number of children in 
institutional care. Financial resources, including from the European Social Fund Plus, aim to 
increase family-based placements, supported by national and regional programs. The focus is 
on training foster carers and enhancing family care standards. As reported in the third version 
of the EU monitoring framework, the share of children in institutional residential care is among 
the lowest in the EU. 

Measures to support independent living and social integration of children leaving alternative 
care 

Some evidence of pilot programmes supported by ESF+ to improve the transition process for 
young people leaving alternative care. An amendment to the Foster Care Act (UD354) is meant 
to increase funding, introduce personalised planning from age 16, and upskill staff. An EU-
backed (EFSD) project will further professionalise transitions via carer training and progress-
tracking  tools.  However,  long-term  success—such  as  labour  market  integration—requires 
clearer impact data on these measures. 

Outreach and awareness raising 

Advertising campaigns were launched for the new programmes, and information materials were 
posted on the websites of government bodies and partner organisations, as well as at local level. 

Stakeholders’ involvement 

The Ministry of Family, Labour and Social Policy led the implementation of the child guarantee, 
coordinating  with  other  ministries  and  public  bodies,  including  Statistics  Poland,  which 
compiles administrative data from welfare, education and local authorities to monitor children’s 
well-being 

222 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
PORTUGAL 

Identification of children in need  

The ECG action plan identifies children in need and reports the size of groups of children in 
need experiencing specific disadvantages (e.g. number of children in alternative care). The ECG 
action plan identifies disadvantages hindering access to the services covered by the ECG (e.g. 
territorial disparities). Yet updates of the size of some of the groups of children in need and their 
access to these services are missing in the progress report (e.g. Roma children). 

Free and effective access to early childhood education and care (ECEC), age 0-3 

Addressing the financial barriers 

Free of charge ECEC for all children under three years old. Some evidence of provision of free 
meals  for  children  in  ECEC,  as  well  as  educational  materials.  Provision  of  subsidised 
transportation can vary from one local authority to another. 

Addressing the non-financial barriers 

Reported increase with over 28,000 new ECEC places but whether this is enough to meet the 
demand  remains  unclear.  Some  policies  to  address  staff  shortages,  yet  further  evidence  is 
needed to assess their adequacy. Some regional disparities reported. 

Measures to support inclusive education and avoid segregated classes  

Children with special educational needs or disabilities and children at risk of poverty or social 
exclusion benefit from eased access to childcare 

Free and effective access to ECEC, age 3-school 

Addressing the financial barriers  

Free of charge pre-school for all children for up to 25 hours per week. Free public transport 
passes for children attending pre-school. Some evidence of provision of free meals for children, 
as well as educational materials. 

Addressing the non-financial barriers  

Plan  to  open  more  than  12,000  new  places,  but  whether  this  is  enough  to  meet  the  demand 
remains  unclear.  Some  policies  to  address  staff  shortages,  yet  further  evidence  is  needed  to 
assess their adequacy. Some regional disparities reported. 

Measures to support inclusive education and avoid segregated classes  

According  to  2025  Eurydice  report,  children  with  special  educational  needs  or  disabilities 
benefit from eased access to childcare, assignment of specialised staff, and reduced group sizes. 
Eased access and participation are offered also to children at risk of poverty or social exclusion, 
with  additional  funding  for  settings  that  have  high  proportions  of  children  at  risk.  Non-
discrimination rule is explicit in admission policies. 

223 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Free and effective access to education 

Measures to prevent and reduce early school leaving, incl. personalised guidance 

The incidence of early leaving from education and training has remained well below the EU 
average, and measures are taken to more fully address it (e.g. large-scale support programs such 
as the Priority Intervention Educational Territories which provides targeted support to combat 
school failure in more than 165 school groups). 

Measures to support inclusive education and avoid segregated classes  

The gap in rate of underachievement among disadvantaged and advantaged children is below 
EU  average.  Some  measures  to  promote  inclusivity  in  education  (e.g.  inclusive  education 
multidisciplinary support team and Escolhas programme supporting inclusion of disadvantaged 
children such as Roma children and children with migrant background). 

Provision of free school materials (incl. digital equipment)  

School  textbooks  are  provided  free  of  charge  in  public  schools.  Through  the  School  Social 
Assistance (ASE), large scale financial support provided to over 400,000 children (i.e. more 
than number of children AROPE) to cover costs of school materials, including supplies. Yet 
due to its annual amount (e.g. between € 16 and  € 8), it does not seem ASE  could cover all 
costs. Some evidence of policies supporting children’s access to digital educational tools (e.g. 
the Digital School Program). 

Free transport 

Free public transport access for children and young students leaving far from their school, and 
for low-income children supported by the ASE. 

Free healthy meal each school day 

ECEC  

Free ECEC includes access to meal. The same eligibility conditions for access to the  service 
apply to access to free meals. In 2023, 91,150 children were in ECEC and accessed free school 
meals, through the School Social Assistance (available to low-income pupils). 

Primary schools  

A large share of children AROPE can access healthy school meals for free or at a discounted 
price. As an illustration, in 2021/2022, 143,889 children before secondary schools benefited 
from free school meals, and 119,570 from meals co-financed at 50%, through the School Social 
Assistance  (available  to  low-income  pupils).  Yet  more  progress  remains  to  be  achieved  as 
regards the provision of free school meals to achieve higher compliance. 

Secondary schools  

Same as for primary schools. 

224 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Free and effective access to school-based activities 

Equal and inclusive access to school-based activities, including participation in school trips and 
sport, leisure and culture 

The rates of children AROPE lacking access to regular leisure and school-based (e.g. school 
trips)  activities  at  the  same  level  or  slightly  above  EU  average.  Yet  several  measures  are 
reported to improve their access (e.g. Escolhas programme fostering inclusion through arts and 
sports, targets set related to sport and culture access, ASE allowing to cover study-visit-related 
expenses). 

Framework for cooperation to provide after school care and opportunities to participate in sport, 
leisure and culture 

Some  large-scale  programmes  fostering  cooperation  between  various  local  services  reported 
(e.g. school sport programmes, organising school sport activities with external institutions such 
as  local  clubs,  and  national  arts  plan,  fostering  collaboration  with  both  public  and  private 
entities). 

Free and effective access to healthcare 

Measures to facilitate early detection and treatment of diseases and developmental problems? 

Portugal  set  objectives  for  healthcare  access,  such  as  ensuring  free  screenings  for  visual, 
hearing, and oral health. There are  free generalist and specialised screenings in the first and 
school years, with large coverage. Portugal carries out a free early-detection neonatal screening 
that  identifies  genetic  and  metabolic  diseases,  enabling  early  treatment.  Yet,  the  share  of 
children AROPE reporting very good health remains lower than that of children not AROPE, 
suggesting room for further progress. 

Childhood vaccines recommended by the WHO 

Portugal undertakes to provide vaccines to all children, with planned investments to enhance 
Primary  Health  Care  services.  In  line  with  the  National  Vaccination  Program,  universal 
vaccinations are generally accessible, as reflected by relatively high rate of coverage, yet with 
data gap as regards Rotavirus vaccine. 

Measures to facilitate early detection and treatment of mental health problems 

In line with its National Mental Health Plan 2023-2030, Portugal implements measures such as 
community mental health teams with specialists like psychologists and establishing local child 
mental health facilities. Remaining implementation barriers include insufficient professionals 
and uneven regional distribution. Children with low family affluence are more likely to feel low 
than their better-off peers, suggesting scope for progress. Their share has also increased in the 
past years. 

Free prescription medicines 

Prescription medicines are reimbursed by the State with rates ranging from 37% to 95% and 
can reach 100% in specific situations such as chronic diseases. Low-income families can also 
benefit from other exemptions or support – the scale of which seems however limited. There is 
some evidence that prescribed medicines remain a financial burden for families. 

225 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Provision of targeted rehabilitation and habilitation services for children with disabilities  

The  action  plan  includes  measures  to  enhance  (re)habilitation  services,  such  as  increasing 
accessibility  interventions,  offering  specific  educational  support.  These  measures  are 
implemented under the Strategy for the Inclusion of Persons with Disabilities 2021-2025 which 
is to be followed up by an updated Strategy. There is some evidence of persisting financial and 
non-financial barriers, such as limited availability of specialized services. 

Health promotion and disease prevention programmes targeting children in need  

Implemented programs include free health screenings for visual, hearing, and oral health under 
the National Child and Youth Health Programme,  targeting all children. Some school health 
programs like the PNSE prioritize vulnerable children’s access. 83.9% of children up to 18 years 
old  are  with  a  primary  health  care  team  assigned,  suggesting  some  scope  for  progress. 
Additional information as regards number of beneficiaries of the PNSE among children in need 
is lacking. 

Healthy nutrition 

Access to healthy nutrition outside of school  

The Operational Programme to Support the Most Deprived provided 32,274 children with food 
baskets,  supposed  to  meet  50%  of  the  beneficiaries’  daily  nutritional  needs,  in  2023.  More 
information  as  regards  ways  other  children  AROPE  are  supported  would  be  necessary  to 
achieve higher compliance. 

Limited advertisement and availability of unhealthy food  

Programmes to promote healthy eating habits among vulnerable children are rolled out (e.g. 
national  strategy  under  the  EU  School  Scheme),  and  availability  and  publicity  of  unhealthy 
foods is restricted. Products such as soft drinks, cookies and snacks were no longer available in 
85%  of  public  schools  surveyed  in  2025  Nevertheless,  child  overweight  figures  slightly 
increased between 2019 (29.6%) and 2022 (31.9%), suggesting the need for further efforts. 

Combatting homelessness  

Provision  of  adequate  accommodation,  prompt  transfer  from  temporary  accommodation  to 
permanent housing, and relevant social and advisory services 

Portugal implements measures to ensure homeless children receive adequate accommodation, 
e.g. with a programme  (Porta de Entrada) to address the situation of households deprived of 
their home through e.g. long-term rental of suitable housing and access to social services. Yet 
3036  children  or  young  people  were  identified  as  homeless  in  2024,  suggesting  scope  for 
progress. 

Measures to prevent the risk of homelessness among families with children 

Portugal implements measures such as housing support programme. The Tenant and Landlord 
Counter  aims  to  protect  against  evictions,  with  mechanisms  for  families.  While  planned 
initiatives include building social housing, it represents 2% of all dwellings – a very low level 
by  EU  standards.  Portugal’s  share  of  children  AROPE  in  household  facing  housing  cost 
overburden  is  among  the  largest  in  the  EU,  suggesting  scope  for  progress  in  addressing 
homelessness risks among families. 

226 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Effective access to adequate housing 

Measures to address energy poverty of families with children 

Portugal addresses energy poverty through e.g. reduced VAT rate on electricity to ease costs, 
other tax reductions on certain energy products, and possibility to transition to a regulated gas 
market. In addition, Portugal’s share of children in poverty in household not able to keep their 
home adequately warm is among the largest in the EU. 

Social housing for families with children  

Portugal's social housing measures include investment programs to boost housing for 
vulnerable families, including children (e.g. through 1 Direito” Program – Support Program 
for Access to Housing). In terms of priority, while municipalities are the ones establishing 
allocation criteria, vulnerable families with children are often prioritised. Yet evidence is 
lacking to assess whether the new public housing units will be enough to meet the demand. 

Good alternative care standards 

Measures  to  ensure  that  the  best  interests  of  the  child  as  well  as  their  overall  situation  and 
individual needs are considered when placing them in alternative care 

Portugal gives priorities to support to biological family and natural environment. It also set up 
an assembly and a national advisory council for foster children and young people, gathering 200 
foster  children.  However,  besides  relevant  legal  provisions  (e.g.  Law  for  the  Protection  of 
Children and Young People in Danger), more evidence of implemented measures to ensure the 
child's voice is heard will be needed to achieve higher compliance. 

Measures to ensure the transition of children from institutional care to quality family-based care 

Portugal  is  transitioning  children  to  family-based  care.  Measures  include  supporting  host 
families and restructuring residential homes toward lower scale homes. Yet, despite a recent 
decrease, the share of children in residential care in Portugal is still larger than the EU average. 

Measures to support independent living and social integration of children leaving alternative 
care 

Portugal  supports  independent  living  for  children  leaving  alternative  care  through  initiatives 
like autonomous apartments and autonomy support teams. Yet there is a  lack of evidence to 
assess  such  measures  as  sufficient  to  support  independent  living  and  social  integration  of 
children  leaving  alternative  care  (e.g.  more  information  on  integration  in  the  labour  market 
could be presented). 

Outreach and awareness raising 

The action plan (and the report) features several communication/awareness-raising actions (e.g. 
development of new digital tools, use of social media, training of social workers to meet specific 
needs  of  vulnerable  children).  Besides  an  ongoing  project  to  foster  take-up  of  support  in 
collaboration  with  local  authorities  (which  already  reached  40,000  children),  more  active 
outreach to children in need is not clearly mentioned in the action plan and the report. 

Stakeholders’ involvement 

Various stakeholders were consulted for the design of the action plan and the drafting of the 
implementation report, including children, NGOs and local authorities. 

227 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
ROMANIA 

Identification of children in need  

While  all  children  at  risk  of  poverty  or  social  exclusion  constitute  the  target  group  of  child 
guarantee  intervention,  there  is  no  indication  how  this  notion  is  operationalised  to  identify 
individual  beneficiaries  of  the  ECG.  The  priority  intervention  groups  are  identified,  with 
description of specific disadvantages which they experience.   

Free and effective access to early childhood education and care (ECEC), age 0-3 

Addressing the financial barriers 

By law, childcare is free for all children from 3 months old, but collateral costs are not covered. 
Considerable  public  investment  (ca.  € 299 m,  mostly  based  on  EU  funds)  aims  to  increase  the 
number  of  places  in  nurseries,  and  employers  are  encouraged  to  subsidize  childcare  for  their 
employees but those measures are not targeted at children in need. The overall ECEC participation 
rate is low. 

Addressing the non-financial barriers 

According to the 2024 progress report, 2184 preschool teachers completed the training programme 
during the  2022-2023 school year. A call for projects on development of complementary early 
education services, worth € 130 m, was launched as part of milestone 458 of the NRRP, initially 
meant to benefit up to 20,000 children from disadvantaged groups, subsequently reduced to 4,500. 
Only 98 projects were declared as eligible for funding under this call (total value below 25% of 
available funds). 

Measures to support inclusive education and avoid segregated classes  

According to 2025 Eurydice report,  children with special educational needs or disabilities, and 
children  with  migrant  background  benefit  from  priority  admission.  The  size  of  the  groups  is 
reduced.  Additional  funding  to  improve  physical  accessibility  and  address  social  exclusion  is 
available. However, the overall ECEC participation rate is low. 

Free and effective access to ECEC, age 3-school 

Addressing the financial barriers  

Kindergarten attendance is free of charge for all children. However, parents need to cover costs of 
transport, meals, educational materials, extramural activities etc. Educational stimulus and social 
educational  voucher  have  been  designed  to  offset  those  for  low-income  families  but  are  not 
effective due to unreliable eligibility tests and delays in payouts (up to 11 months). 

Addressing the non-financial barriers  

Formal childcare is in short supply, especially in rural areas. In 2022, the Ministry of Education 
announced plans to develop 850 day-care services (e.g. toy libraries or community gardens), but 
there  is  no  update  on  those  plans  in  the  2026  progress  report.  The  percentage  of  non-AROPE 
children aged 3 to 6 who participate for more than 25 hours in ECEC is 39.6%, 22 pp higher than 
among children AROPE, while children AROPE are more likely (52.4%, i.e. 10 pp difference) to 
participate for up to 24 hours per week. 

228 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Measures to support inclusive education and avoid segregated classes  

The 2024 progress report points to the Early Education Reform Project (2009-2023), which aimed 
to  improve  access  to  inclusive  education  for  children  from  vulnerable  groups  and  resulted  in 
construction  of  358  kindergartens  and  some  teacher  training.  According  to  the  2025  Eurydice 
report,  children  with  special  educational  needs  or  disabilities,  and  children  with  migrant 
background benefit from priority admission and the size of the groups is reduced. Extra funding is 
available. 

Free and effective access to education 

Measures to prevent and reduce early school leaving, incl. personalised guidance 

The EWME tool aims for early identification and monitoring of students at risk of dropping out 
from school. EWME relies on the real-time data collection and enables school staff and decision-
makers at county and central levels to mitigate the risks identified at the student, class, and school 
levels. Despite those efforts, the rural areas in Romania continue to suffer the EU-highest incidence 
of  early  school  leaving  (26.3%  in  2024).    The  incidence  of  early  leaving  from  education  and 
training (15.5% in 2025) is well above the EU average (9.1%). 

Measures to support inclusive education and avoid segregated classes  

According to the action plan, access to quality education is unequal (depending on socio-economic 
status) and situation of Roma children, children in rural areas and with disabilities  remains a 
concern. According to the 2024 FRA Roma survey, 43% of Roma children in Romania attend a 
school where all or most people are Roma, compared to 28% in 2016), which points to an increase 
in segregation. 

Provision of free school materials (incl. digital equipment)  

According  to  the  2026  progress  report,  during  the  2024–2025  school  year,  a  total  of  272,935 
students  received  free  school  supplies.  In  the  2025–2026  school  year,  almost  20  m  lei  were 
allocated for the purchase of school supply packages. Some local authorities provide free textbooks 
and practice books to be used in class. 

Free transport 

 Transportation  benefits  are  available  for  students  in  accredited/authorized  pre-university 
education, including those who travel to another locality for schooling. Students benefit from free 
access to local, metropolitan, county, and inter-county public transport, as well as rail transport, 
throughout the entire school year. 

Free healthy meal each school day 

ECEC  

Meals  in  kindergartens  are  supposed  to  be  free  but  many  establishments  pressure  parents  to 
contribute. The authorities are working to address this through enhanced monitoring and control 
mechanisms. Measures to reduce or abolish costs for low-income families have been legislated 
and their implementation has started. 

Primary schools  

 The number of educational institutions included in the “Healthy Meal” program increased from 
1,223 in 2024 to 1,462 in 2025, while the number of students benefiting from a hot meal reached 
514,700 in 2025. This is equal to ca. 44% of the number of children in need and an increase by 
about 56,000 students compared with 2024. Depending on infrastructure, this includes hot meals 
and alternative food packages. There are concerns about the quality of those meals. 

229 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Secondary schools  

It  is  not  clear,  how  many  of  the  educational  establishments  participating  in  "Healthy  Meal" 
programme operate at secondary level. 

Free and effective access to school-based activities 

Equal and inclusive access to school-based activities, including participation in school trips and 
sport, leisure and culture 

According to the 2026 progress report, there are over 300 extracurricular education units, including 
children’s palaces, children’s clubs, and school sports clubs. Access for children to these units is 
in  principle  universal  and  free  of  charge.  In  cases  where  demand  exceeds  capacity  or  in  units 
offering performance-based activities, pre-selections may be organized; these pre-selections are 
based on skills in the relevant field and are not linked to the socio-economic status of the children. 

Framework for cooperation to provide after school care and opportunities to participate in sport, 
leisure and culture 

A framework protocol between the Ministry of Labour, Ministry of Education and Ministry of 
Health  establishes  the  basis  for  integrated  social,  educational  and  community  services.  With 
cohesion policy funds support (approx. € 677 m EU contribution), during 2025-2029, 2000 such 
integrated community services will be established in Romania and could contribute indirectly to 
ensuring access to after school services and activities . 

Free and effective access to healthcare 

Measures to facilitate early detection and treatment of diseases and developmental problems? 

As explained in action plan, the principle of universal free healthcare for children is not followed 
in practice. According to the EU monitoring framework, comprehensive (general health, hearing, 
vision, dental) free screening programmes are available for all children in need at post-natal, first 
years, and school years stages. However, the 2026 progress report indicates that at most 92% of 
newborns benefitted from such screenings in 2025. The children in need are the most likely to be 
left out. 

Childhood vaccines recommended by the WHO 

The childhood vaccination rates in 2024 hovered around 78-79%, which was among the lowest in 
the EU and significantly below the 2015 levels of 86% to 95%. According to 2026 progress report, 
mechanisms  for  catch-up  vaccination  for  unvaccinated  or  incompletely  vaccinated  children, 
including those in vulnerable situations, are being strengthened. 

Measures to facilitate early detection and treatment of mental health problems 

 According  to  2026  progress  report,  action  is  being  taken  to  improve  children’s  access  to 
specialized mental health services. Stress is put on combatting drug use and providing access to 
psychological testing for evaluating cognitive, emotional, and behavioural development. 

Free prescription medicines 

As explained in ESPAN report, some medicines are available for free while others require a co-
payment varying from 10% to 80%. There is no means test that would eliminate the costs for low-
income families.   

230 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Provision of targeted rehabilitation and habilitation services for children with disabilities  

Both the action plan and the first progress report stress the inadequacy of the disability screening 
system and insufficiency of rehabilitation and habilitation services.  By the end of 2025, 12,931 
children  with  disabilities  were  benefiting  from  such  services  in  specialized  centres,  marking  a 
significant improvement since 2021, but still insufficient compared to the total registered number 
of children with disabilities, which is 89,081.  

Health promotion and disease prevention programmes targeting children in need  

The action plan includes Specific Objective 3.1, i.e. to increase access to high-quality healthcare, 
with a focus on preventive services and vulnerable children. The first progress report provides 
information on implementation of the respective measures. Among others, 765,847 comprehensive 
health assessment reports were registered in 2023. 

Healthy nutrition 

Access to healthy nutrition outside of school  

While  there  are  programs  and  measures  dedicated  to  supporting  access  to  healthy  food  for 
children  from  vulnerable  backgrounds,  these  are  not  enough  to  cover  all  children  in  need. 
Children  with  special  educational  needs  benefit  from  support  that  includes  food  or  other 
materials necessary for their development, conditional on school attendance. 

Limited advertisement and availability of unhealthy food  

The  Ethical  Code  for  Advertising  Directed  at  Children  establishes  strict  limitations  on  the 
advertising of food products targeted at children. These voluntary regulations are observed by 
most companies. According to Law No. 123/2008, foods not recommended for preschoolers 
and students, including those high in fat, salt, and sugar, are strictly prohibited in schools and 
kindergartens. Additional constraints operate at local level in many schools/municipalities. 

Combatting homelessness  

Provision  of  adequate  accommodation,  prompt  transfer  from  temporary  accommodation  to 
permanent housing, and relevant social and advisory services 

The 2026 progress report links the issue of combatting homelessness with informal settlements. 
While relevant, no information is given on the number of children living in such settlements, or 
how they could be helped.  

Measures to prevent the risk of homelessness among families with children 

In 2024, the share of children AROPE living in households facing housing cost overburden was 
12.6%, well below the EU average of 21.1%. The 2026 progress report mentions the National 
Housing Strategy for 2022–2050, which includes specific objectives regarding inclusive and 
affordable housing, with a focus on vulnerable households – notably planned expansion of the 
public rental housing stock, to be managed by local authorities. 

Effective access to adequate housing 

Measures to address energy poverty of families with children 

ESPAN report describes means-tested (ca. 16% of AROPE households) seasonal  heating aid 
(10% to 100% of heating costs for 5 months per year), and year-round energy supplement (70 
lei).  Families  with  children  are  not  specifically  targeted.  The  progress  reports  refer  to  RRF 
funding  for  energy  efficiency  improvements  in  residential  buildings.  In  2024,  the  share  of 
children AROPE living in households unable to keep home adequately warm was 25.5%, close 
to the EU average of 24.0%. 

231 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Social housing for families with children  

Social housing is scarce and generally in bad technical shape.  The National Housing Strategy 
for the period 2027–2050 establishes the construction of at least 60,000 public housing units, 
of which at least 40,000 units designated as social housing. Meanwhile, the demand is estimated 
at 190,000 social housing units and 1,200,000 affordable housing units. 

Good alternative care standards 

Measures  to  ensure  that  the  best  interests  of  the  child  as  well  as  their  overall  situation  and 
individual needs are considered when placing them in alternative care 

The law establishes a legal and institutional framework aimed at preventing the separation of 
the child from the family and ensuring the necessary support to maintain the child in the family 
environment whenever possible. When the public social assistance service identifies a situation 
of vulnerability that could lead to the separation of the child from the family, an assessment of 
the situation is carried out, and based on this, a service plan is developed for a minimum period 
of 12 months, during which parents are actively supported in raising and caring for the child. 
No information on child’s participation.  

Measures to ensure the transition of children from institutional care to quality family-based care 

Over 73% of children in alternative care are placed in formal family-based care, what results 
from rapid improvements (see progress report p. 27 for details) and puts Romania among best 
EU performers. However, there are concerns about the quality of this care.  

Measures to support independent living and social integration of children leaving alternative 
care 

 Law no. 191/2022 introduced the possibility for young people to choose between continuing 
the special protection measure or receiving a monthly allowance, on the condition that they have 
a job or enrol in an educational program. In 2024, 5,834 young people requested the allowance 
and the total amount spent by the state was 233,429,034 lei. This corresponds to ca. € 7,850 per 
beneficiary.   

Outreach and awareness raising 

The action plan mentions national campaigns to promote children's rights, raising awareness of 
stakeholders through adding a dedicated section to the website of the authority responsible for 
the  protection  and  promotion  of  children’s  rights,  and  postings  on  social  media.  The  2026 
progress report stresses that outreach interventions were primarily directed toward communities 
identified  as  having  a  high  level  of  socio-economic  vulnerability,  including  rural  and 
marginalized communities. 

Stakeholders’ involvement 

The process leading to the formulation of the action plan  – including mapping of children in 
need – is described in the action plan in considerable detail. The 2024 progress report mentions 
consultations  with  various  stakeholders  (including  children),  but  it  is  not  clear  whether 
permanent  consultative  bodies  exist  and  are  meaningfully  involved  in  the  ECG  process. 
However,  civil  society  periodically  complains  that  their  involvement  in  evaluation  and 
monitoring mechanisms is not sufficient. 

232 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
SLOVENIA 

Identification of children in need  

The  target  groups  are  specified.  The  progress  reports  analyse  the  evolution  of  the  general 
population  of  children  AROPE,  however  do  not  systematically  provide  information  on  the 
numbers in each of the target group. The action plan identifies specific kinds of disadvantage 
experienced by a particular category of children.   

Free and effective access to early childhood education and care (ECEC), age 0-3 

Addressing the financial barriers 

ECEC  is  provided  in  unitary  settings  for  children  under  three  years  of  age  and  older.  The 
progress reports confirm that the most vulnerable families pay no nursery fees, while lower-
income groups receive 90% or 80% fee grants. However, the income ceiling for free preschool 
is below the AROP threshold, suggesting some children in need may lack free access. From the 
second  child  on,  ECEC  is  free.  Meals  are  free  if  ECEC  is  free.  Public  transport  is  free  for 
children under 6. 

Addressing the non-financial barriers 

Some  low-income  families,  e.g.  Roma,  choose  higher  child  allowance  over  free  ECEC.  To 
address this, targeted measures were introduced, e.g. Roma assistants in kindergartens enhanced 
cooperation with families and local communities, more flexible forms of ECEC programmes 
(short fully funded programmes important for inclusion of children otherwise not included in 
ECEC) and abolishment of 20 % increase in child benefit for children who do not attend ECEC 
(based  on  data  showing  that  the  higher  child  benefit  has  impact  on  decreased  enrollments). 
AROPE children get admission priority. Staff shortages  may persist regionally. Despite high 
ECEC participation, Roma children’s lower attendance remains a challenge.   

Measures to support inclusive education and avoid segregated classes  

The  Slovenian  preschool  education  system  is  based  on  the  inclusion  of  children  in  regular 
classes  With  ESF+  support,  pre-school  education  is  promoted  among  Roma.  In  addition  to 
Roma assistants and shorter programs, Slovenia also uses the possibility of organizing sections 
for  Roma  children  in  kindergartens,  where  higher  labor  and  material  costs  arise  and  where 
smaller  groups,  with  more  intensive  language  support  and  more  structured  socialization  are 
necessary.  According  to  2025  Eurydice  report,  children  with  special  educational  needs  or 
disabilities, as well as children AROPE, benefit from eased access to childcare, assignment of 
specialised  staff,  and  reduced  group  sizes.  Additional  funding  for  settings  that  have  high 
proportions of children at risk is also available. Challenges remain: retention of staff, adaptation 
of facilities, etc. 

Free and effective access to ECEC, age 3-school 

Addressing the financial barriers  

Same analysis as for 0-3 age group. 

Addressing the non-financial barriers  

Same analysis as for 0-3 age group.   

Measures to support inclusive education and avoid segregated classes  

Same analysis as for 0-3 age group. 

233 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Free and effective access to education 

Measures to prevent and reduce early school leaving, incl. personalised guidance 

The early school leaving rate stood in 2024 at 5.0%, below the EU average (9.3%). The ECG 
action plan includes targeted measures, especially for Roma pupils: additional staff, and reduced 
class size. Currently, 48 Roma assistants are employed. Schools provide counsellors, who act 
in case of dropout risk and connect with parents and local NGOs, youth centres and other public 
institutions if necessary. There is also a wide provision of upskilling and reskilling programmes 
for those who drop out of education. 2025 law amendment emphasizes the duty of schools to 
take timely, gradual and cooperative action with the family and local environment when risks 
of irregular attendance or unsuccessful integration are detected, with preventive and supportive 
action. 

Measures to support inclusive education and avoid segregated classes  

Children  with  special  needs  are  integrated  into  mainstream  schools  through  tailored  plans, 
adaptive tools, individual assistance and specialist staff. However, only ca. 26% of secondary 
schools are adapted for children with reduced mobility. Since February 2024, law amendments 
allow immigrant students to gradually enter the compulsory primary school curriculum, starting 
with  Slovenian  language  lessons  and  progressively  joining  other  subjects  based  on  teacher 
assessment.  Schools  can  flexibly  plan  activities  under  a  revised  extended  curriculum,  with 
emphasis  on  integration.  Recent  legislation  also  allows  communication  and  learning  in  the 
language of the deafblind. Targeted measures support Roma pupils. ESF+ project offers help to 
young people with special needs to their transition to higher level of education and/or labour 
market. 

Provision of free school materials (incl. digital equipment)  

Textbooks are free for all primary students; workbooks are free only for low-income families. 
Most  secondary  schools  have  textbook  funds,  though  not  mandatory.  The  state  co-funds 
textbooks for national minorities and pupils with special needs. Basic materials and sportswear 
are not free. ICT investment (~EUR 50.5M by 2027) and digital training are planned. Measures 
are widely compliant, though AROPE families still face cost barriers. 

Free transport 

In Slovenia, children with special needs receive free transport via organised, public, or parent-
provided means. Free transport is also granted to all pupils living over 4 km from school, all 
first-graders, those facing safety risks, and children with special needs (per guidance decision). 
Secondary students get aid if school is 2+ km away. Pupils with severe mobility issues receive 
free adapted transport. New legislation allows children with life-threatening medical conditions 
to have an accompanying adult on transportation, who assists them as a lay assistant. 

Free healthy meal each school day 

ECEC  

Meals are free when ECEC is free (full day programme, half day programme for the second or 
the third child in the family or for the children coming from the most vulnerable families), the 
meals are free as well. The meals are breakfast, morning snack, lunch and afternoon snack. Full 
compliance depends on the level of coverage of vulnerable families. 

234 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Primary schools  

On school days every primary and secondary school must provide snacks for children who sign 
up for them. As an additional offer schools can also organise breakfasts, lunches and afternoon 
snacks. All children need to sign up for them. Meals are subsidised for the lowest income groups 
(from 100 to 50% depending on family’s income). SI plans to roll out free school meals for all 
children by 2027. 

Secondary schools  

On school days every primary and secondary school must provide snacks for children who sign 
up for them. As an additional offer schools can also organise breakfasts, lunches and afternoon 
snacks.  Low-income  children  need  to  sign up  for  them.  Meals  are  subsidised  for  the  lowest 
income groups (from 100 to 50%). Numbers of students who receive meal subsidies is smaller 
than in primary school. 

Free and effective access to school-based activities 

Equal and inclusive access to school-based activities, including participation in school trips and 
sport, leisure and culture 

The primary education programme, updated in 2024, consists of a free compulsory and extended 
programme, the latter offering voluntary activities such as health and well-being, cultural and 
civic education, and learning-to-learn, delivered before or after lessons depending on school 
organization. Schools also provide additional options like extended stay, morning care, extra 
lessons, interest activities, sports clubs, and leisure programmes, though implementation varies 
as the reform is phased in until 2028. Most extracurricular activities are free when delivered 
within  the  curriculum,  while  above-standard  offerings  may  require  payment;  however, 
excursions and other costs are co-financed by the Ministry, with financial support or exemptions 
available  for  low-income  families.  Additional  free  educational,  cultural,  sports,  and  leisure 
activities, as well as holiday camps, are also offered through schools and regional centres to 
promote inclusion and student development. 

Framework for cooperation to provide after school care and opportunities to participate in sport, 
leisure and culture 

The “safe and stimulating learning environment” measure ensures access to cultural institutions 
and visits by artists to schools. It also supports programmes to build social and emotional skills 
(e.g. outdoor camps, summer school). A project to boost Roma children's communication skills 
will run in schools and Roma centres, focusing on Dolenjska. The ECG action plan envisions 
the establishment of a support system in the local environment to promote the social inclusion 
of children and adolescents. Multigenerational centres, family centres and multi-purpose Roma 
centres provide out of school activities for children in need all over the country. 

Free and effective access to healthcare 

Measures to facilitate early detection and treatment of diseases and developmental problems? 

Children are covered by compulsory health insurance, either through the family or individually. 
They  receive  free  preventive  exams,  vaccinations,  treatment  and  rehabilitation,  with  added 
support  for  chronic  or  serious  conditions.  At  the  primary  healthcare  level,  SI  has  appointed 
school doctors who ensure that all children are included in preventive healthcare programmes 
and, if necessary, in cooperation with the school and social care, also invite the children's parents 
to  check-ups  (e.g.,  in  case  of  non-attendance).  The  “Together  for  Health”  ensures 
comprehensive check-ups in childhood, including vulnerable groups. Expanded developmental 
clinics (2024) improve early detection and intervention. The action plan provides measures to 
strengthens monitoring and inclusion of vulnerable children. Unmet medical needs for 2024 are 
at 2,4% for children AROPE. 

235 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
Childhood vaccines recommended by the WHO 

Vaccination rates are between 95-90%, except against pneumococcal vaccine and rotavirus for 
which the vaccines are not free. In 2024 a general vaccination programme was adopted with the 
addition of varicella vaccination. Children are vaccinated with the MMRV combination vaccine 
(measles, mumps, rubella, and varicella). Vaccination against chickenpox was added to the 2025 
Annual Vaccination Programme. The vaccination against Human papillomavirus (HPV) is free 
for girls and boys (from 6th grade and until 26 years).  

Measures to facilitate early detection and treatment of mental health problems 

Mental healthcare is accessible and covered by compulsory insurance. A network of child and 
adolescent  mental  health  centres  is  being  established  (22  of  25  operational),  offering  early 
screening,  parental  counselling  and  different  interventions.    Additional  programmes  support 
vulnerable groups. A network of counsellors in mental distress is funded in 2023-2025. The 
Youth Mental Health Programme "This is Me", which has been operating since 2001 within the 
NIJZ, offers telephone and online counselling for children and adolescents. A pilot project on 
early recognition of mental health problems among adolescents is underway. Between 2024-
2026  programmes  are  implemented  under  RRP  to  strengthen  and  upgrade  the  professional 
competences of health, pedagogical and social workers in the field of anxiety recognition and 
management (Cool kids programme). Other programmes with focus on vulnerable groups are 
available.  Challenges  persist,  including  unequal  access  fragmented  care,  shortage  of  clinical 
psychologists, psychiatrists. 

Free prescription medicines 

Prescription medicines for children are generally free of charge through the  public healthcare 
system. 

Provision of targeted rehabilitation and habilitation services for children with disabilities  

Children  with  special  needs  receive  appropriate  treatment  and  development  support  in  the 
context of development clinics up to age 19. Early mental-health screening is integrated into 
paediatric care. The Health Insurance Institute co-finances rehabilitation and physiotherapy. In 
schools, children with special needs receive tailored support.  Children may attend regular or 
specialised programmes. Challenges persist, e.g. related to uneven regional access. 

Health promotion and disease prevention programmes targeting children in need  

“Health Today for Tomorrow  – the Now Programme” provides preventive care for children, 
students,  and  those  with  developmental  disabilities,  with  plans  to  monitor  inclusion  of 
vulnerable groups. Alcohol Programme 2025–2026 targets youth prevention. Media campaigns 
address  tobacco,  alcohol,  screens,  energy  drinks,  sun  safety  and  HPV.  Updated  2024/25 
nutrition  guidelines  apply  to  all  schools.  At  primary  healthcare  level,  the  appointed  school 
doctors  ensure  that  all  children  are  included  in  preventive  healthcare  programmes  and,  if 
necessary, in cooperation with the school and social care. 

Healthy nutrition 

Access to healthy nutrition outside of school  

ESF+ Programme for Addressing Material Deprivation in Slovenia for the period 2021-2027 
provides in-kind support in the form of food packages to low-income children. Food package 
contains milk, oil,  flour, jam, rice, pasta,  canned beans, and canned tomato. 35,727 children 
benefit from it. There is no in-cash support provided in the ESF+ Programme but Slovenia has 
well developed system of social assistance in cash and child allowance. 

236 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Limited advertisement and availability of unhealthy food  

The advertising and availability of unhealthy food in preschool/ school institutions is restricted, 
and  vending  machines  banned  in  schools.  The  ECG  action  plan  envisions  the  restriction  of 
marketing of unhealthy foods (energy-dense and nutritionally poor foods and sugary drinks) to 
children, with a focus on limiting the digital marketing of unhealthy foods. In organizing school 
meals, schools are required to follow the nutritional guidelines for educational institutions. Food 
literacy is part of the curriculum in primary schools. 

Combatting homelessness  

Provision  of  adequate  accommodation,  prompt  transfer  from  temporary  accommodation  to 
permanent housing, and relevant social and advisory services 

Several schemes, e.g. rent subsidies, are in place. The new Pathways to Homelessness strategy, 
which is ready but not yet adopted, envisages the introduction of a housing-lde approach. Social 
assistance  programmes  provide  shelters,  day  centres,  counselling,  and  outreach.  Maternity 
homes  support  mothers  and  women  in  distress  with  housing  and  psychosocial  aid.  Child 
homelessness 
through  preventive  social  policies  and  early‑intervention 
mechanisms (financial social assistance, child benefits, emergency aid, and targeted support for 
vulnerable  groups  help  stabilize  families  facing  economic  hardship  or  eviction).  Structural 
shortcomings persist, eg. shortage of public rental and social housing. 

is  addressed 

Measures to prevent the risk of homelessness among families with children 

There are preventive and early intervention mechanisms, such as cash social assistance, child 
benefits, emergency assistance and targeted support to vulnerable groups. Additional housing 
units  for  vulnerable  groups:  more  public  rental  housing,  activating  vacant  private  housing, 
regulating  rents,  ensuring  legal  certainty,  renovating  stock,  and  reforming  rent  subsidies. 
Funding: € 151 m in 2023, 2024 and 2025 (altogether) for the National Housing Fund €  60 m 
in grants for building, buying, and renovating public rentals at social rents from the RRP and 
53 m from Cohesion policy up to € 100 m per year between 2025 and 2034 for public rental 
housing based on the Act on the Financing and Promotion of the Construction of Public Rental 
Housing, adopted in 2025.  

Effective access to adequate housing 

Measures to address energy poverty of families with children 

EUR  60 m under RRP to address the shortfall in public rental housing through a combination 
of reform and investment also to address energy poverty. Under the 2021-2027 Cohesion Policy 
Programme,  Slovenia  allocated  € 23.5  m  to  measures  addressing  energy  poverty,  including 
energy  efficiency  renovations  targeting  vulnerable  households.  In  the  second  half  of  2022, 
Slovenia regulated fuel and energy prices and introduced a one-off energy allowance to protect 
the most vulnerable. Electricity providers must not disconnect vulnerable customers. Share of 
children AROPE living in a household unable to keep home adequately warm is lower than EU 
average (12.3% vs.24.4%). 

Social housing for families with children  

Social housing is in short supply. This is being addressed by a number of measures in the action 
plan, e.g. 5,000 additional public rental housing units will be provided by 2026 (progress report 
updates: 566 new public rental housing in 2024 and 113 in 2025). Additionally, under the 2021-
2027 Cohesion Policy Programme, € 41.9 m reallocated to affordable and sustainable housing. 
Families with children have priority in access to public rental housing, and housing legislation 
also contains provisions that allow for exceptional allocation of public rental housing to protect 
the interests of children. Persons with disabilities and families with a disabled member also have 
priority. 

237 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
Good alternative care standards 

Measures  to  ensure  that  the  best  interests  of  the  child  as  well  as  their  overall  situation  and 
individual needs are considered when placing them in alternative care 

The court decides on a child’s foster placement and appoints a foster parent. The social work 
centre signs a fostering contract defining rights and obligations, monitors care, cooperates with 
the foster family, child, and family of origin, and prepares an individual foster care plan for each 
child. Child view’s are ensured 

Measures to ensure the transition of children from institutional care to quality family-based care 

Share of children in residential care out of children in alternative care is at EU average (41.4% 
vs 40.9% in the EU). The action plan envisions promotion and development of family-based 
and alternative care for children with special needs and support services for providers, support 
for children upon leaving foster care and beyond.  In May 2025, an amendment to the Foster 
Care Act  was adopted with the aim of eliminating the difficulties in placing children in foster 
families and rewarding foster parents more appropriately. Work on upgrading and improving 
foster care arrangements is ongoing. In December 2025, an amendment to the Social Care Act 
was adopted, introducing a new social care service, “community support,” which provides the 
legislative basis for the implementation of community support. 

Measures to support independent  living and social integration of children leaving alternative 
care 

There  is  no  information  on  this  is  the  action  plan,  only  in  2nd  progress  report.  Support  for 
children  transitioning  from  institutional  or  alternative  care  in  Slovenia  is  tailored  across 
different systems. In foster care, continued placement after age 18 is possible—up to age 26—
if it serves the young person’s best interests, particularly for education, disability, or lack of 
housing,  with  social  services  preparing  all  parties  for  independence.  In  residential  centres, 
young people may voluntarily remain in supported housing or move to semi-independent living 
with professional guidance, receiving help with education, employment, housing, and life skills, 
often  until  age  26,  with  informal  support  sometimes  continuing  longer.  For  children  with 
disabilities or serious illnesses, a 2025 reform introduced “community support” services to help 
families  care  for  children  at  home,  ease  caregiver  burden,  and  support  reintegration  from 
institutions  through  personalized  assistance.  Additionally,  young  people  leaving  care  are 
prioritized in access to non-profit housing, especially those under 35. 

Outreach and awareness raising 

Slovenia  has  a  dense  network  of  services  and  programmes.  The  national  action  plan  and 
progress reports refer to some awareness raising activities or field work as part of some of the 
mentioned measures (e.g. multifunctional Roma centers, Roma assistants).  Though, outreach 
may be often considered passive rather than proactive (through administrative procedures or 
families need to reach out themselves for support). 

Stakeholders’ involvement 

A  consultative  group  with  representatives  of  non-governmental  organisations  and  other 
networks was set to make proposals on the actions of the intersectoral working group. Children 
were consulted on the action plan. An inter-ministerial working group for programme guidance 
and  monitoring  of  the  implementation  of  the  national  action  plan  was  established.  The 
interministerial working group prepared the second report on the implementation of the ECG. 
Network for children, of 41 NGOs in the field of child rights  is also part of this group. Children 
will  participate  in  monitoring  the  implementation  of  the  ECG.  By  2029,  25  regional 
consultations are planned.  

238 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
SLOVAKIA 

Identification of children in need  

The ECG action plan documents the size of disadvantaged groups (e.g. those in alternative care) 
while also highlighting barriers like financial obstacles to early childhood education and care. 
However, the first progress report lacks updated figures on most of these groups and their access 
to services. According to the 2026 progress report, the upcoming update of the action plan will 
focus on gathering current data on the number of children in need, and on assessing their access 
to services, with emphasis on filling gaps for underrepresented groups.  

Free and effective access to early childhood education and care (ECEC), age 0-3 

Addressing the financial barriers 

A very low participation rate (lowest in the EU) suggests existence of access barriers. 

Addressing the non-financial barriers 

With  € 20  million  support  from  ERDF,  1,000  new  childcare  places  are  to  be  created,  but  it 
remains unclear whether this target will be delivered and whether this will be enough to meet 
the unmet demand. Limited evidence of targeted policies to monitor and address staff shortages, 
geographic  disparities.  The  EU-lowest  ECEC  participation  rate  suggests  existence  of  access 
barriers, on top of cultural preferences. 

Measures to support inclusive education and avoid segregated classes  

Besides commitments to inclusivity in education and projects to develop inclusive education 
training,  there  is  limited  evidence  of  implementation  of  large-scale  policies  aiming  to  adapt 
facilities  and  educational  materials  for  children  with disadvantaged  background  and  specific 
needs in ECEC. 

Free and effective access to ECEC, age 3-school 

Addressing the financial barriers  

Compulsory ECEC from 5 years old onward, implying free access. Tuition fees acknowledged 
as a barrier for younger children, yet compulsory ECEC from the age of 4 will be introduced 
(starting from 2027/2028), with subsequent extension to children from the age of 3. No free 
provision  of  transportation  and  educational  materials  mentioned.  Free  school  meal  scheme 
includes subsidies for low-income children who attend kindergarten, and for all children in the 
last year of pre-school. 

Addressing the non-financial barriers  

Target to construct 1,000 new childcare places. Limited evidence of targeted policies to monitor 
and address staff shortages, geographic disparities. The lowest ECEC participation rate suggests 
existence of access barriers. 

Measures to support inclusive education and avoid segregated classes  

Besides commitments to inclusivity in education and projects to develop inclusive education 
training – while some shortages of special education assistants are reported – limited evidence 
of implementation of large-scale policies aiming to adapt facilities and educational materials 
for children with disadvantaged background and specific needs in ECEC. 

239 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Free and effective access to education 

Measures to prevent and reduce early school leaving, incl. personalised guidance 

The early school leaving rate has remained broadly stable and below the EU rate, and measures 
are taken to more fully address it (e.g. second-chance education programs, 2024 Early school 
leaving project to set up an early warning system from 2028 onward). 

Measures to support inclusive education and avoid segregated classes  

Some  measures  taken  (e.g.  teachers  training,  language  support  measures  targeting  Roma 
children). The gap in rate of underachievement among disadvantaged and advantaged children 
is  above  EU  average.  The  October  2025  education  reform  aims  to  prevent  segregation  and 
improve access by introducing equitable school districts. In special education, focus is shifted 
to family-based care and modern diagnostic centres for better child protection and cross-sector 
collaboration. 

Provision of free school materials (incl. digital equipment)  

Beside free provision of books in primary and secondary schools, no clear evidence of  large-
scale measures supporting access of children in need to other school materials. 

Free transport 

Limited transport support children in (pre) school under specific provisions via Act 322/2025 
on the financing of schools, with few regional initiatives. 

Free healthy meal each school day 

ECEC  

The implementation report includes information on the delivery of a food subsidy (assessed by 
Slovakia as adequate to cover cost of meals) for children in kindergartens, primary school and 
in first years of secondary school. A reform in 2023 increased the number of children receiving 
such  subsidy,  to  more  than  520,000  after  (higher  than  the  number  of  children  AROPE).  To 
achieve higher compliance, more information will be needed as regards the targeting of children 
in need. 

Primary schools  

The subsidy mentioned in the ECEC section also covers primary school pupils. 

Secondary schools  

The subsidy mentioned in the ECEC section also covers secondary school pupils. 

Free and effective access to school-based activities 

Equal and inclusive access to school-based activities, including participation in school trips and 
sport, leisure and culture 

The rates of children AROPE lacking access to regular leisure and school-based (e.g. school 
trips) activities are above the EU average. Several measures reported to improve their access 
(e.g. financial support through state’s subsidy granted to around 87 civil society organisations 
to promote access to leisure activities). 

240 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Framework for cooperation to provide after school care and opportunities to participate in sport, 
leisure and culture 

Limited evidence of cooperation between various local services, besides some subsidy measures 
to support leisure activities, including support to NGOs. 

Free and effective access to healthcare 

Measures to facilitate early detection and treatment of diseases and developmental problems? 

Slovakia emphasizes universal prevention, targeting all young children for early intervention. 
While there are general screenings available for free from post-natal to school years, there is a 
lack of evidence as regards more specialised screenings (e.g. hearing, vision and dental check-
ups) as well as take-up rates. 

Childhood vaccines recommended by the WHO 

The  Slovak  Republic's  vaccination  program  covers  children  with  compulsory  vaccines, 
achieving  relatively  high  coverage.  Yet  some  disparities  persist  (e.g.  among  Roma 
communities).  There  is  also  a  data  gap  as  regards  Rotavirus  vaccine.  Projects  are  funded  to 
promote  access  of  children  (including  from  marginalised  Roma  communities)  to  preventive 
examinations and vaccinations. 

Measures to facilitate early detection and treatment of mental health problems 

Developmental monitoring by paediatricians and family counselling exist but their scope seems 
limited.  Children  with  low  family  affluence  are  more  likely  to  feel  low  than  their  better-off 
peers, suggesting scope for progress.  The October 2025 education reform aims to strengthen 
mental  health  support  with  early  intervention  and  better  school-counselling  coordination.  A 
research is currently underway to map the state of mental health of children, with the first partial 
data to be available in 2026. 

Free prescription medicines 

In Slovakia, prescription medicines are free for children up to age 6, and lower co-payments 
apply  to  older  children.  However,  there  is  a  lack  of  specific  measures  to  improve  access  to 
medications. 

Provision of targeted rehabilitation and habilitation services for children with disabilities  

Slovakia aims to provide comprehensive services for children with disabilities, including access 
to speech therapists and therapeutic educators. Cash allowances under Act no. 447/2008 support 
severe disabilities, but barriers persist, like insufficient services and waiting lists. 

Health promotion and disease prevention programmes targeting children in need  

Slovakia's  health  promotion  includes  a  national  action  plan  for  prevention  of  obesity  and 
programme targeting Roma communities, with the aim of increasing participation in preventive 
examinations and compulsory vaccination, improving orientation in the healthcare system, and 
removing communication and confidentiality barriers through health support assistants. There 
is scope for progress on specific prevention, e.g. in terms of smoking prevention. 

241 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Healthy nutrition 

Access to healthy nutrition outside of school  

 While food packages and basic material aid were distributed twice in 2025 under an ESF+-
funded national project to support deprived children, the broader issue of ensuring access to 
healthy nutrition outside school days remains unresolved and requires greater focus. The low 
adequacy of social transfers contributes to difficulties in accessing healthy food. 

Limited advertisement and availability of unhealthy food  

The progress report presents the National Action Plan for the Prevention of Obesity for 2015 – 
2025 which includes among others measures to ensure healthy food choices are available to 
children (e.g. in school environments), and limit children’s exposure to advertising of unhealthy 
food/drink. Some information on the scope/impact of these measures (e.g. how many children 
reached out) would be needed to achieve higher compliance. 

Combatting homelessness  

Provision  of  adequate  accommodation,  prompt  transfer  from  temporary  accommodation  to 
permanent housing, and relevant social and advisory services 

Slovakia's  measures  to  ensure  homeless  children  receive  adequate  accommodation  include 
crisis intervention (social) services with emergency housing facilities, and affordable housing 
targeting homeless families (new call is currently being prepared from ERDF in the amount of 
approx.  € 24  million).  Yet  evidence  suggests  that  these  measures  are  rather  small  scale. 
According to civil society, the European Homelessness Count in Košice (2024) identified 996 
children  (43%  of  the  city's  homeless  population)  experiencing  homelessness  or  housing 
exclusion, including those in shelters, temporary accommodation, informal settlements, or other 
inadequate housing conditions. 

Measures to prevent the risk of homelessness among families with children 

A housing allowance is available to households receiving minimum income protection. This 
measure helps prevent homelessness among families with children by alleviating housing costs. 
The share of children AROPE in households facing housing cost overburden is above the EU 
average. 

Effective access to adequate housing 

Measures to address energy poverty of families with children 

Slovakia addresses energy poverty with contributions for insulating family houses and installing 
renewable energy equipment, with investments from EU Cohesion Policy Funds (with projects 
such as “Green for households” or “Green Solidarity” in the total amount of € 136 m) and under 
the Recovery and Resilience Plan. The government approved a new energy assistance law for 
low-income  households,  with  broad  targeting  (most  of  the  population  qualifies).  These 
initiatives are implemented to mitigate energy costs, but more efforts will be needed, including 
actions targeting marginalized Roma communities, as Slovakia’s share of children AROPE in 
household unable to keep their home adequately warm is among the largest in the EU. 

242 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Social housing for families with children  

Slovakia  is  working  to  provide  social  housing  through  various  programmes  (including 
significant  allocation  from  EU  Cohesion  Policy  Funds  in  the  total  amount  of  approx.  € 100 
million)  targeting  vulnerable  groups,  including  families  with  children.  The  overall  extent  to 
which they are given priority however remains unclear. In addition, there is some evidence of 
long  waiting  time  for  social  housing,  indicating  a  shortage.  Recently,  a  € 14.2 m  call  for 
housing-led projects was launched, funding 44 initiatives across Slovakia to provide affordable 
rental housing for vulnerable groups, including families with children, homeless individuals and 
young people transitioning from institutional care 

Good alternative care standards 

Measures  to  ensure  that  the  best  interests  of  the  child  as  well  as  their  overall  situation  and 
individual needs are considered when placing them in alternative care 

Slovakia  addresses  children's  best 
supporting 
interests 
deinstitutionalisation with projects to shift from institutional care, and training programmes for 
carers.  In  addition,  there  is  some  evidence  of  actions  taken  to  promote  exchanges  between 
children, families and social services. More detailed evidence of explicit measures to ensure the 
child's best interests are considered during placement decisions is needed to reach higher level 
of  compliance.  Recently,  a  national  project  expanded  social  and  legal  child  protection  by 
creating hundreds of new specialist roles at employment offices and family centres.  

in  alternative  care  by 

Measures to ensure the transition of children from institutional care to quality family-based care 

Slovakia promotes deinstitutionalization by actively implementing projects enhancing family-
based care. The 2026 progress report highlights ongoing efforts to reduce institutional care by 
expanding foster  networks  and  community-based  alternatives,  while  promoting  participatory 
social work through family conferences. Smaller, community-integrated facilities are replacing 
large institutions, and updated legislation continues to prioritise foster care for children with 
disabilities. To address low uptake for children with severe disabilities, new measures—such as 
financial  support  for  accessible  housing  and  respite  breaks  for  foster  carers—have  been 
introduced. The scope of the measures is to be clarified. The share of children in residential care 
in Slovakia is slightly lower than the EU average. 

Measures to support independent living and social integration of children leaving alternative 
care 

There  is  some  evidence  that  Slovakia  supports  independent  living  for  children  leaving 
alternative  care  by  following  the  process  of  children’s  independence  after  leaving  the  care 
system and provides them with counselling support. Yet, more information will  be needed to 
assess  such  measures  as  sufficient  to  support  independent  living  and  social  integration  of 
children  leaving  alternative  care  (e.g.  more  information  on  integration  in  the  labour  market 
could be presented). 

Outreach and awareness raising 

The  action  plan  (and  the  report)  features  several  awareness-raising  actions  and  the  biennial 
implementation report some more active outreach, e.g. to promote access of specific groups of 
children in need (e.g. Roma children) to early childhood education and care and healthcare. Yet 
no estimate of non-take-up rates is provided, not allowing to assess whether the scope of these 
measures is large enough to be fully compliant. 

Stakeholders’ involvement 

Various stakeholders were consulted for the design of the action plan (through the Committee 
on Children and Youth), including children (through participation, with their responses directly 
included in the strategic document) and NGOs. 

243 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
FINLAND 

Identification of children in need  

The action plan focuses on a) families in a weak socio-economic position; b) children, young 
people, and families who need support in everyday life; c) groups of children and young people 
vulnerable  to  discrimination  or  other  harm  (a  detailed  list  includes  eleven  sub-categories). 
Taken  together,  the  above  categories  sufficiently  cover  the  target  group  of  the  ECG 
recommendation (children in need, i.e., children at risk of poverty or social exclusion). There 
are no numbers provided (N.B. In the next progress report, statistics on target groups and the 
number of children will be presented). 

Free and effective access to early childhood education and care (ECEC), age 0-3 

Addressing the financial barriers 

ECEC  is  provided  in  unitary  settings  for  children  under  three  years  of  age  and  older.    It  is 
universally free of charge for four hours. Additional hours are to be paid for, but fees depend 
on parents’ income and are fully waved for those with least resources. In consequence, about 
half of all early childhood education clients do not pay any fee.  

Addressing the non-financial barriers 

Finland lacks 6,000 early childhood education teachers, according to the European Commission 
report on staff shortages in the Early Childhood Education sector (28 November 2023). The 
current government’s plan is to train 1,400 teachers in ECEC per year. There has been extra 
funding for universities. The issue will be to retain the teachers in the jobs. The ESPAN report 
mentions  that  the  generous  home  care  allowance  also  causes  socio-economic  bias  in  the 
enrolment rates. 

Measures to support inclusive education and avoid segregated classes  

The  2022  reform  of  the  Act  on  ECEC  concerning  support  for  the  children  aimed  to  ensure 
equality for all children in Finland. Among other things, children have the right to any assistance 
and  support  necessary  to  participate  in  early  childhood  education,  and  a  personal  early 
childhood education plan for every child. Support for learning reform that came into effect in 
2025  covers  also  pre-primary  education.  Research  shows  that  the  reform  of  the  Act  has 
strengthened the children’s and parents’ rights in ECEC. 

Free and effective access to ECEC, age 3-school 

Addressing the financial barriers  

Same analysis as for 0-3 age group. 

Addressing the non-financial barriers  

Same analysis as for 0-3 age group. 

Measures to support inclusive education and avoid segregated classes  

Same analysis as for 0-3 age group. 

244 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Free and effective access to education 

Measures to prevent and reduce early school leaving, incl. personalised guidance 

The Quality and Accessibility Programme for High Schools improved the quality of secondary 
education  and  ensured  its  accessibility  across  Finland.  A  quality  strategy  for  education  and 
training up to 2030 was developed. The expansion of compulsory education (2021) is a measure 
aiming  to  reduce  early  school  leaving.  The  action  plan  and  progress  report  do  not  mention 
individual guidance nor gender aspect. During the current government term, the key objectives 
of the Government Programme have been to strengthen student learning support and special 
education. 

Measures to support inclusive education and avoid segregated classes  

The Right to Learn programme helped to prevent achievement gaps and to realise equality in 
education.  The  Act  amending  the  basic  Education  Act  (1090/2024)  entered  into  force  on 
1.8.2025, the starting point of which is to ensure that pupils have the concrete support measures 
they need. The aim is to provide pupils with support for their learning as early as possible and 
on a low threshold. In 2024, the Ministry of Education and Culture opened a government grant 
application for measures promoting educational equality and non-discrimination in ECEC, pre-
primary education and basic education. 

Provision of free school materials (incl. digital equipment)  

Most basic materials (pens, glue, scissors, etc.) needed in schools and all books are provided 
for free. Sports clothing and other personal sport equipment (such as running shoes, swimming 
suits etc.) are not covered. However, if a household has a low income and is unable to buy items 
requested by the school (including schoolbags), social assistance may cover these costs. All IT 
equipment  and  musical  equipment,  as  well  as  extramural  activities  that  are  part  of  the 
curriculum, are free. 

Free transport 

While transport to school is free in primary education, special conditions apply in secondary 
schools. There are cash benefits to compensate the costs for school travel, which apply to all 
students. 

Free healthy meal each school day 

ECEC  

All children receive one healthy meal for free each school day. All meals are free of charge, but 
most families pay client fees, which depend on the size and income of the family and the number 
of hours that a child participates in early childhood education and care. The fees are waved for 
families with lowest incomes.  

Primary schools  

Primary  school  meals  are  free  of  charge  for  all  children.  The  challenge  is  that  the  school 
recommendations on meals are not always implemented, and the quality of school meals is not 
systematically  monitored.  A  school  meal  development  programme  aims  to  address  the 
challenges described, and to increase the supply of healthy snacks.  

245 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Secondary schools  

Secondary  school  meals  are  free  of  charge  for  all  children.  The  challenge  is  that  the  school 
recommendations on meals are not always implemented, and the quality of school meals is not 
systematically  monitored.  A  school  meal  development  programme  aims  to  address  the 
challenges described, and to increase the supply of healthy snacks. 

Free and effective access to school-based activities 

Equal and inclusive access to school-based activities, including participation in school trips and 
sport, leisure and culture 

Extramural activities that are part of the curriculum, are free. For low-income children, social 
assistance may cover costs of participation in voluntary school trips that are not included in the 
curriculum. The 2023-2027 government program envisions for every child and adolescent an 
opportunity to engage in at least one pleasant hobby. 

Framework for cooperation to provide after school care and opportunities to participate in sport, 
leisure and culture 

Comprehensive  schools  in  Finland  have  provided  pupils  with  opportunities  for  free 
extracurricular activities for several years. Since 2019, activities have been organized through 
the Finnish model for leisure activities. The goal of the model is to ensure that every pupil has 
access to an enjoyable and free leisure activity as part of their school day. 

Free and effective access to healthcare 

Measures to facilitate early detection and treatment of diseases and developmental problems? 

Free  screening  programmes  are  conducted  at  post-natal,  first  years,  and  school years  stages, 
covering general health, hearing, vision, and (except for the post-natal stage) dental check-ups. 
The age limit is set at birth to first year of secondary education (age 16). There is no information 
in  the  action  plan  nor  progress  report  on  how  many  children  in  need  benefit  from  those 
screenings.  In  addition,  the  LENE  test  is  used  for  neurological  development  screening  for 
children aged 3–6. Monitoring a child’s growth and development is based on statutory, regular, 
and structured health examinations (in addition to LENE, also comprehensively covering other 
age groups) conducted both in child health clinic services and in school health services. 

Childhood vaccines recommended by the WHO 

All children and young people are entitled to vaccinations against 13 different diseases, as well 
as related complications and long-term adverse effects. Both girls and boys are also offered the 
HPV vaccine, which protects against several types of cancer. Child health clinics, as well as 
school  and  student  health  services,  are  universal  services  that  provide  vaccinations  in 
accordance  with  the  national  immunisation  programme.  Vaccination  coverage  is  monitored 
annually through THL’s national reporting system, which ensures the implementation of the 
programme and enables the identification of possible regional variations. 

Measures to facilitate early detection and treatment of mental health problems 

Mental health care for children is part of primary health care and provided within the wellbeing 
services counties. The Therapy Guarantee for children and young people aims to ensure timely 
access  for  individuals  under  the  age  of  23  to  short-term  psychotherapy  or  other  effective 
psychosocial treatments at the basic service level. The challenge in the implementation of the 
Therapy  Guarantee  is  the  existing  delays  in  mental  health  services  for  children  and  young 
people, as well as regional differences in service availability. The numbers of beneficiaries are 
not provided.  

246 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Free prescription medicines 

Medicines for minors are not completely free of charge in Finland. A minor pays the  normal 
copayments according to the reimbursement categories: a) basic reimbursement: the customer 
pays  60%;  b)  lower  special  reimbursement:  the  customer  pays  35%;  c)  higher  special 
reimbursement: the customer pays € 4.50 per medicine per purchase. The annual deductible also 
applies to minors. The initial and annual deductibles for the Social Insurance Institution’s (Kela) 
medicine reimbursements are linked to the national pension index. The index for 2026 increased 
by 0.5% compared to the previous year. 

Provision of targeted rehabilitation and habilitation services for children with disabilities  

The new Disability Services Act entered into force on 01 January 2025. The aim is to ensure 
that  every  person  with  a  disability  can  receive  a  service  package  tailored  to  their  individual 
needs. A child may receive rehabilitation as individual rehabilitation provided by Kela or in the 
form of adaptation training and rehabilitation courses arranged for the whole family.  

Health promotion and disease prevention programmes targeting children in need  

Wellbeing services counties have an obligation to provide all children with planned and uniform 
levels  of  counselling  and  school  and  educational  health  care.  The  services  aim  to  identify  a 
child’s  need  for  special  support  as  early  as  possible  and  to  arrange  appropriate  support  and 
assistance. Through these services, children and young people receive the vaccinations included 
in the national immunisation programme. 

Healthy nutrition 

Access to healthy nutrition outside of school  

There are no specific cash benefits to cover food costs, although one component for calculating 
the level of the social assistance benefit is the minimum expenditure on food, housing and other 
expenses necessary for ensuring subsistence. 

Limited advertisement and availability of unhealthy food  

The Finnish National Agency for Education and the Finnish Institute for Health and Welfare 
(THL) recommend that sweets, soft drinks or sugared  juices are not sold regularly at schools 
and educational institutions, at least during school hours. The Consumer Ombudsman issued a 
recommendation that there should be no advertising in schools. 

Combatting homelessness  

Provision  of  adequate  accommodation,  prompt  transfer  from  temporary  accommodation  to 
permanent housing, and relevant social and advisory services 

Finland applies the housing-led approach to combat homelessness. According to the progress 
report, at the end of 2023, there were 123 homeless couples and families in Finland (32 fewer 
than year before), with a total of 180 children (11 more). Most homeless families with children 
in Finland live temporarily with acquaintances or relatives. Some families also live in temporary 
accommodation or housing arranged by the municipality or social services. However, there are 
no precise data on this.  Finland has a programme to eliminate long-term homelessness by 2027.  

247 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Measures to prevent the risk of homelessness among families with children 

All low-income households living in rental, right-of-occupancy or part-ownership housing are 
eligible  for  general  housing  allowances.  The  eligibility  depends  on  the  structure  of  the 
household, housing costs and the total income of the household. The eligibility regulations are 
the  same  for  all  legal  residents,  including  homeless  people,  who  are  eligible  for  housing 
allowances once they have an apartment to live in. Low incidence of housing cost overburden. 

Effective access to adequate housing 

Measures to address energy poverty of families with children 

The  progress  report  lists  temporary  forms  of  support  developed  for  particularly  affected 
households. The VAT on electricity was reduced fixed-periodically, the possibility of deducting 
electricity  above  a  certain  cost  limit  was  added,  and  the  electricity  subsidy  was  available  to 
households that were unable to fully benefit from the electricity allowance, due to low income. 
These measures were not specifically targeted at families with children but benefited also this 
group. 

Social housing for families with children  

There  is  no  information  in  the  action  plan  nor  progress  report  on  the  rules  of  access  to 
public/social housing. According to the 2023 Housing Europe report, the share of social housing 
within the overall housing stock is relatively high (11%). Resident selection is based on social 
and  economic  need,  taking  into  account  housing  needs,  wealth  and  income  of  the  applicant 
household. Vacant housing must be offered to those most in need of housing. 

Good alternative care standards 

Measures  to  ensure  that  the  best  interests  of  the  child  as  well  as  their  overall  situation  and 
individual needs are considered when placing them in alternative care 

Section 4 of the Child Welfare Act (417/2007) lays down provisions on the best interests of the 
child.  Child  welfare  work  that  serves  the  best  interests  of  the  child  requires  the  workers  to 
conduct a thorough and comprehensive examination and review of the child and the child’s life 
situation, to build trust and to devote sufficient time to ensure that the key quality assurance 
factors are present in the work: fairness, transparency, reliability, safety and the principle of 
proportionality. 

Measures to ensure the transition of children from institutional care to quality family-based care 

In  2025,  the  share  of  children  in  residential  care  within  the  total  population  of  children  in 
alternative  care  was  47.0%,  i.e.  above  the  EU  average  of  40.9%.  There  is  no  national 
development programme for family care in Finland at the moment. However, foster care in child 
welfare is being developed in wellbeing services counties and in individual regional projects as 
part of SOILA – Social Innovations in Child Protection (2023–2026) coordination project, for 
example. 

Measures to support independent living and social integration of children leaving alternative 
care 

In line with the Child Welfare Act, alternative care must end when a person turns 18 and the 
right to after-care extends until the age of 23 years. The purpose of after-care is to make it easier 
to re-integrate from alternative care and to promote the young person’s independence. The duty 
of after-care also includes support to the parents or other persons responsible for the upbringing, 
especially  in  cases  of  the  child  or  young  person  returning  home  after  the  termination  of 
alternative care. 

248 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Outreach and awareness raising 

Outreach  services  are  statutory  in  social  welfare.  In  the  reform  of  the  legislation  on  mental 
health and substance abuse services, a provision on community social work and outreach work 
was  added  to  the  Social  Welfare  Act.  In  practice,  there  are  challenges  especially  in  helping 
children and families who need multiple services from healthcare and social welfare services 
and multiprofessional support (e.g. children with disabilities, children with mental health- and 
substance  abuse  problems).  Out-of-school  activities  have been  strengthened  by  offering free 
club activities. This is laid down in the Youth Act. 

Stakeholders’ involvement 

Based  on  the  Progress  Report,  the  Child  Guarantee  is  linked  to  the  implementation  of  the 
national child strategy. Several dialogue workshops were organised for the preparation of the 
follow-up report   which was designed as a process where extensive cooperation and dialogue 
with key stakeholders and authorities for the implementation of the Child Strategy has played 
an important role.   

249 

 
 
 
 
 
 
 
 
 
 
SWEDEN 

Identification of children in need  

The groups of children with specific disadvantages are listed in the action plan. The 2024 and 
2026 progress reports provide updates on the  number of children at risk of poverty or social 
exclusion and its three sub-indicators. The challenge of how to transpose the statistical notion 
of  the  risk  of  poverty  or  social  exclusion  in  identification  of  children  in  need  has  been 
acknowledged but not addressed. 

Free and effective access to early childhood education and care (ECEC), age 0-3 

Addressing the financial barriers 

The fees for childcare vary between municipalities and depend on the number of children in a 
family  and  family  income.  Children  from families  with  no  earned  income  pay no  fee  at  all. 
According  to  the  ESPAN  report,  out-of-pocket  costs  are  generally  not  considered  to  create 
financial barriers to ECEC services in Sweden. Further reduction of fees will become effective 
on 1 July 2026. 

Addressing the non-financial barriers 

Children whose parents are unemployed or on parental leave with another child are to be offered 
a place in a preschool for at least three hours per day or 15 hours per week. Non-participation 
is more common among new immigrants. No barriers have been identified. 

Measures to support inclusive education and avoid segregated classes  

Children who need special support in their development due to physical, mental or other reasons 
are to be given the support or care that their special needs demand. If a child is identified as in 
need of special support, the director of the facility is to ensure that it gets this support. 

Free and effective access to ECEC, age 3-school 

Addressing the financial barriers  

525 hours of pre-school per year (i.e. 15 hours per week) are free of charge (incl. free meals). 
The excess hours are to be paid for, within limits. The last, compulsory, year of pre-school is 
free of charge.   

Addressing the non-financial barriers  

Newly arrived immigrants (meaning that both parents have arrived less than 5 years before) are 
around three times less likely than to send their children to pre-school (what is an issue of their 
choice). No other barriers have been identified. 

Measures to support inclusive education and avoid segregated classes  

Children who need special support in their development due to physical, mental or other reasons 
are to be given the support or care that their special needs demand. If a child is identified as in 
need of special support, the director of the preschool is to ensure that the child gets this support. 

250 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Free and effective access to education 

Measures to prevent and reduce early school leaving, incl. personalised guidance 

The  2024  progress  report  presents  collaboration  of  schools  and  social  services  as  a  tool  to 
increase student attendance. Recent legislative measures aim to secure guidance and stimulation 
to  pupils,  strengthen  the  school’s  compensatory  role  and  to  increase  the  number  of  pupils 
eligible for entry to upper secondary school. Municipalities are obliged to organise activities for 
young people who have dropped out education. The incidence of early leaving from education 
and training (6.7% in 2025) is below the EU average (9.1%). 

Measures to support inclusive education and avoid segregated classes  

The action plan (p. 16-17) discusses various aspects of disability, neurodiversity, and learning 
difficulties,  pointing  to  the  merits  of  special  schools,  which  give  pupils  more  time  for  their 
learning and specialised healthcare. Admission to special schools or compulsory schools for 
pupils  with  learning  disabilities  is  preceded  by  an  educational,  psychological,  medical  and 
social  assessment.  This  approach  differs  from  the  one  focused  on  inclusive  education.  As 
stressed in the 2026 progress report, recent amendments to the Schools Act create conditions 
for equal and high-quality education resulting with better educational outcomes, and improved 
safety and security in schools. The impact of those amendments remains yet to be seen.  

Provision of free school materials (incl. digital equipment)  

Children in primary and secondary schools have access to books and other learning tools free 
of  charge.  Schools  need  to  make  sure  that  all  children  have  access  to  IT  facilities  and  the 
municipality needs to provide free access to technical equipment for learning. 

Free transport 

Transport for children in primary schools may be free depending on length of journey, traffic 
conditions,  disability,  or  special  circumstances,  but  not  income.  Secondary  schools  are  not 
entitled to provide free transport; however, public transport is free during daytime for secondary 
school pupils in most municipalities. 

Free healthy meal each school day 

ECEC  

The ECEC tuition fees include meals. Those fees reflect a percentage of the household’s total 
income up to an income ceiling. Families without any work or capital income do not pay these 
fees, and thus some – but not all – children at risk of poverty or social exclusion receive free 
meals. 

Primary schools  

School meals are free for all children in primary school. 

Secondary schools  

Free meals are offered in high schools in 238 out of 290 municipalities. In the case of upper 
secondary school and upper secondary school for pupils with learning disabilities, there is no 
obligation for the school to provide school meals. Most municipalities and schools, however, 
also serve or provide free school meals for upper secondary school pupils. 

251 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Free and effective access to school-based activities 

Equal and inclusive access to school-based activities, including participation in school trips and 
sport, leisure and culture 

School-based activities such as school trips and study visits are usually free of charge. Fees for 
after-school (offered for all children up to the age of 13) are subject to a ceiling and depend on 
family  income.  The  action  plan  sets  that  the  proportion  of  children  from  socioeconomically 
disadvantaged families who participate in sports and cultural activities is to increase. A “leisure 
activity card”, available for children aged 7-16 and aiming to improve access to meaningful 
leisure  activities, was launched in September 2025. For children in  economically vulnerable 
households  the  annual  amount  on  the  leisure  card  is    2500  kroner  (vs  550  kroner  for  other 
children). 

Framework for cooperation to provide after school care and opportunities to participate in sport, 
leisure and culture 

Schools,  social  services,  health  and  child  protection  services  work  together  to  safeguard 
children’s rights and ensure coordinated support. The Government also emphasises cross‑sector 
cooperation  as  a  core  element  of  ensuring  a  safe  and  secure  upbringing  for  all  children. 
Municipalities  are  obliged  to  provide  after‑school  care  (fritidshem)  for  children  aged  6–13, 
offering structured educational, social, leisure and cultural activities. These combined structures 
form a coherent and functional framework for inter‑agency cooperation. 

Free and effective access to healthcare 

Measures to facilitate early detection and treatment of diseases and developmental problems? 

Comprehensive  (general  health,  hearing,  vision,  dental)  free  screening  programmes  are 
available for all children in need at post-natal, first years, and school years stages, until the age 
of 18 years and with a strong outreach component. In addition, the first progress report lists 
several  measures  that  had  been  implemented  to  facilitate  early  detection  and  treatment  of 
diseases. 

Childhood vaccines recommended by the WHO 

The  vaccination rates  against  Polio,  Diphtheria-Tetanus-Pertussis,  Hepatitis  B,  Haemophilus 
influenzae B, and Pneumococcal disease are high (94% to 97%). Rates for Measles and Rubella 
are also high (93% in 2024) but have deteriorated by 4 pps. since 2021. 85% of one-year-olds 
are vaccinated against Rotavirus, what is among the highest rates in the EU. Beginning in 2027, 
Chickenpox will be added to the national childhood vaccination programme. 

Measures to facilitate early detection and treatment of mental health problems 

The  action  plan  points  to  the  School  Health  Service  as  a  provider  of  mental  health  and 
psychosocial interventions, announces a future strategy on mental health and suicide prevention, 
and stresses increased public expenditure in this policy area. Procedures to be followed in case 
of  mental  disorders  in  children  are  clearly  defined  and  described  in  the  action  plan.  No 
information on the number of children in need who receive assistance. 

Free prescription medicines 

Prescription medicines are free of charge for all children under 18 years of age. 

252 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Provision of targeted rehabilitation and habilitation services for children with disabilities  

The  first  progress  report  discusses  provision  of  rehabilitation  and  habilitation  services  for 
children with disabilities, identifying some remaining gaps. The Government has commissioned 
the National Board of Health and Welfare to develop a national strategy and action plan for 
more equal and effective rehabilitation and habilitation, due in May 2026. 

Health promotion and disease prevention programmes targeting children in need  

In 2022, The incidence of feeling low more than once a week among children  from families 
with low level of affluence was 32%, vs EU average of 29%. The first progress report describes 
actions  taken  to  boost  Child  Health  Services  and  expand  the  home  visit  programme  among 
younger  children.  Beginning in  2024,  ‘Family  centres’  bringing  together  maternal  and child 
health services, open preschools and social support services were to be launched, mandated to 
focus  on  supporting  gender-equal  parenting  and  preventing  violence.  A  report  on  their 
functioning was scheduled for March 2026.  

Healthy nutrition 

Access to healthy nutrition outside of school  

There are no in-kind benefits or services that directly support access to healthy meals for low-
income children. However, a temporary reduction of VAT on food (from 12% to 6%) is in force 
from April 2026 to December 2027. Counselling and treatment for obesity and anorexia among 
children are free of charge via the healthcare system. The share of children AROPE (<16 y.o.) 
who suffer from the enforced lack of access to fresh fruits and vegetables and meat or vegetarian 
equivalent at least once a day is low. 

Limited advertisement and availability of unhealthy food  

A reform of advertisement and marketing of food was planned in late 2024. No update since. 

Combatting homelessness  

Provision  of  adequate  accommodation,  prompt  transfer  from  temporary  accommodation  to 
permanent housing, and relevant social and advisory services 

The figures quoted in the 2024 progress report (p. 43-44) indicate that children are relatively 
protected from homelessness experienced by their parents, but the challenge persists. 

Measures to prevent the risk of homelessness among families with children 

The progress report refers to the national strategy on homelessness for 2022–2026, which i.a. 
calls  for  nation-wide  implementation  of  the  housing-led  approach  and  stresses  the  need  for 
cooperation to prevent evictions (esp. those involving children). In 2024, the share of children 
AROPE living in households facing housing cost overburden was 24.3%, above the EU average 
of 21.1%. 

Effective access to adequate housing 

Measures to address energy poverty of families with children 

The progress report discusses the roll-out of supplementary housing allowance in 2021-2024 
and the ways of improving the permanent housing allowance (so that the risks of the repayment 
are minimised). In 2024, the share of children AROPE living in households unable to keep home 
adequately warm was 7.5%, among the lowest in the EU and well below the EU average of 
24.0%. 

253 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Social housing for families with children  

According to the latest estimate, there are ca. 840,000 municipally owned public housing units. 
While some municipalities facilitate access for vulnerable families, there is no specific legal 
requirement to provide housing to certain household categories. A recent legislative amendment 
allows  municipal  housing  agencies  to  mediate  housing  through  advances  and  reservations. 
Housing allowance was adjusted upwards as of 2026, with amounts dependent on family size. 

Good alternative care standards 

Measures  to  ensure  that  the  best  interests  of  the  child  as  well  as  their  overall  situation  and 
individual needs are considered when placing them in alternative care 

The action plan (Section 1.8) stresses children’s right to participation. The Social Services Act 
contains provisions on the rights of the child. Since 2020, the provisions of the UN Convention 
on the Rights of the Child are part of the national legislation, imposing a clearer obligation on 
courts and legal practitioners to apply the rights that follow from the CRC in deliberations and 
assessments  that  are  part  of  decision-making  processes  in  cases  and  matters  concerning 
children. 

Measures to ensure the transition of children from institutional care to quality family-based care 

The  share  of  children  in  residential  care  within  all  children  in  alternative  care  is  among  the 
lowest  in  the  EU.  According  to  the  first  progress  report,  a  governmental  inquiry  committee 
investigated options to expand and improve family-based care. 

Measures to support independent living and social integration of children leaving alternative 
care 

Social  services      have  a  legal  duty  to  provide  continued  support  both  during  and  after  a 
placement of a young person in alternative  care. After a  placement ends, the  social services 
provide  structured  follow-up and  practical,  emotional  and social  support.  This  includes help 
with finding housing, managing money, planning for school or work, and offering practical and 
emotional guidance. The system emphasizes  early preparation, continuity, participation from 
the young person and ensuring that each young person has access to trustworthy adults.   

Outreach and awareness raising 

Some measures, listed in the progress report, are specifically targeted at areas with high levels 
of social exclusion, focusing on health, physical activity, and prevention of early school leaving. 
The action plan does not contain provisions for raising awareness on child poverty and social 
exclusion. 

Stakeholders’ involvement 

Several  consultation  processes  are  in  place,  enabling  a  continuous  dialogue  between  civil 
society, government agencies and the Government, contributing to ECG action plan and first 
progress report. Civil society organisations represented in Child Rights Delegation contributed 
with a child rights perspective. Children have been consulted through the Living Conditions 
Survey  of  Children  (30,000  respondents)  and  specifically  on  ECG,  facilitated  by  the 
Ombudsman for Children. 

254