This drop in take-up rates may be explained by parents’ increasing concern over the quality of care in the ECEC institutions, caused by shortage of (trained) staff and increasing child:staff ratios. Municipalities have struggled to keep up with demand from a rising number of children in the recent decade, and with living up to the ECEC guarantee. A recent study also found substantial differences in levels of quality across the ECEC provisions for the 0–2-year-olds (Lindeberg et al., 2023).
Parents have not surprisingly reacted to the mounting reports about the quality concerns: A representative survey from 2023 found that 24 % of Danish parents of children under nine years had prolonged their leave period in order to postpone the use of extra-familial childcare, giving the poor quality of ECEC on offer as the reason why. The survey also found that the lack of quality had led 19% of parents to cut their working hours in order to reduce the time their children spend in ECEC (Epinion, 2023). In other words, parents’ impression of declining quality of care has led not only to a drop in take-up rates but has also affected their labour market participation. The staff also identify the lack of quality as an issue: in another survey, 38% of ECEC staff say that more children show signs of poor well-being compared to five years ago. Asked to the reason behind, 74% of these respondents quote the lack of staffing as a reason (Bureau2000, 2023). The situation of the shortage of staff has changed will change in the years to come with the already experienced drop in fertility (from 1.7 in 2020 to 1.5 in 2023), which is expected to remain stable or even decline further. Just one year ago, the prospective was of a shortage of 5.0000 trained pedagogues in 2035 (Finansministeriet, 2023), while updated figures on the fertility rate now indicate an excess of 1.000 pedagogues by the same year (Finansministeriet, 2024).
Other absentee and leave rights
Caring for sick children is an often-debated issue in Denmark and there are no statutory rights for parents to take time off from work in such situations. Most collective agreements include the right to take at least one day off from work with full pay if the child is ill and on the first day of illness. Public employees have the right to take up to 2 days off, given that the child is under 18 years and resides with this parent. It is mainly the mother who take these days. Women on average take 1.5 days annually, and men 0.9 days (2019). The biggest difference is found in the state sector where women took half a day more than men, and lowest in the municipal sector where the gendered difference was only 0.2 days annually. Absence due to the child’s illness is lowest in the private sector, where men take on average 0.8 days and women 1,2 days – likely because employees in this sector have less extensive rights (Statistics Denmark, 2020).
Parents as well as co-parents and adoptive parents also have the right to 2 annual care days per child under 7, residing with the respective employee. The days can be passed on to the following year.
Work hours are stipulated not in the legislation but in the work contract or collective agreement. Typical work hours are 37 hours per week. It is possible as an employee to make an individual agreement about reducing work hours, but this is not a statutory right.
Should a parent/parents lose a child under 18 years, a so-called sorrow leave can be granted of up to 26 weeks for both parents. Collective agreements ensure full pay during this period.
In addition, a care leave of 5 working days can be granted annually to provide care for own children, parents, spouse/partner, or a person residing in the abode if they need support due to severe illness or functional limitation. It can be taken as a full period of consecutive days or as individual days.
Unlike in the other Nordic countries, there is no cash for care scheme following the parental leave period.
Leave reforms
In comparison to the Nordic neighbours, it is the non-reforms of parental leave policies during recent decades which are of most interest in Denmark. Unlike the changes which took place in the other Nordic countries between 1990s and 2000s (see www.leavenetwork.org for detailed developments in each Nordic country), which most importantly resulted in the introduction of a father’s quota, the Danish government has until recently withheld its‘ opposition to the re-introduction of this particular policy. Instead, it has been the labour market partners representing employers and wage earners who have been pushing for the re-introduction of the father’s quota in this period.
In Denmark, parental leave is not only regulated via national legislation but also via collective agreements between labour market partners (in addition to company-specific local agreements). These labour market rights ensure full wage compensation during leave and in some cases also provide the right for a father’s quota. The quota is then contingent on certain conditions, such as the father using his quota and taking certain weeks of the parental leave period. The state does not guarantee these entitlements, however; they depend on being in employment and in a job covered by the collective agreement.
While most political parties have argued against re-introducing the father’s quota which was in place 1998-2002, the financial sector in the private labour market sector was actually the first to introduce the quota as a labour market right in their collective agreement, with the introduction of a 4-week father’s quota with full pay.
The father’s quota has also been included in collective agreements in other traditionally male-dominated private sectors, such as the industrial sector, where a paid 3-week father’s quota with full pay was introduced in 2007. This sector represents 18,000 private sector employers encompassing more than 300,000 employees (two-thirds of whom are men) nationwide, mainly within production (Statistics Denmark, n.d.-a). The number of weeks has been prolonged on multiple occasions (five weeks in 2017and at the renegotiation of the collective agreements in 2020, the father’s quota was extended to eight weeks in the industrial sector). As regards the public sector, a 6-week father’s quota was introduced in 2008, and an additional week was added in 2015, thus lagging behind the private sector (Rostgaard & Ejrnæs, 2023).
This development illustrates that fathers over time have been positioned differently with different leave rights according to which job sector they belong. Also, parental leave continues to be used by mothers. There have been only few political attempts to address this situation, except by the coalition of political parties consisting of the Social Democrats, Social Liberals and Socialist People’s Party (Socialistisk Folkeparti) who stood together for election in 2011. Their party program aimed to re-introduce the father’s quota, and this time of 12 weeks. However, once in office, the Social Democrats took a different position, concerned that the introduction of the father’s quota would curtail women‘s right to take a long leave and have consequences for the family‘s freedom to organise their time, here replicating arguments previously applied by the right-wing government (Rostgaard and Lausten, 2015). In the words of the then Prime minister: