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Ratios versus environments: Why ECEC quality reform must treat staffing and space as one system
Fiona Alston
Jan 28, 2026
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Educator-to-child ratios are one of the most visible signals of quality in early childhood education and care (ECEC). They set expectations for supervision, safety and responsiveness. They also shape what educators can realistically deliver across a long day: sustained interactions, intentional teaching, inclusion, documentation and partnerships with families.
But the ratio debate often stops where it should start.Ratios do not operate in a vacuum. They operate in rooms. They operate through routines, transitions, layouts, acoustics, sightlines and storage. The ECEC sector is now confronting an uncomfortable truth: ratios can improve supervision on paper while the physical environment quietly undermines safety, inclusion and educator capacity in practice.
This is not an argument against ratios. It is an argument against treating ratios as the reform.
The National Quality Framework (NQF) sets minimum ratios and expects adequate supervision at all times. It also allows ratios to be calculated across the whole service rather than by room, creating operational flexibility.
This flexibility can also create risk when approved providers/management use it as a staffing efficiency lever rather than a child-centred allocation tool. A service can be “in ratio” and still run rooms where adults are stretched, sightlines are compromised, and peak-time congestion increases stress for children and educators.
In other words: compliance can be achieved while quality slips.
High adult-to-child ratios support safety and supervision. Yet more adults in small rooms can intensify crowding, especially when additional support staff are present. That crowding can raise noise levels, compress children’s movement options, and heighten friction at key points of the day including arrivals, meals, nappies/toileting, pack-up, indoor–outdoor transitions.
For some children, particularly those who experience sensory overload, crowding is not a minor inconvenience. It can be a trigger. When interpersonal distance collapses, regulation becomes harder, behaviours escalate more quickly, and educators spend more time managing the environment than teaching within it.
This has direct implications for service design and rostering:
- whether rooms are fit for purpose for the number of children and adults using them at peak times
- whether staffing is being deployed to reduce pressure points, not just fill a roster grid
- whether “extra adults” are being added without any adjustment to how space is configured and used
Quality Area 3 of the National Quality Standard is explicit: environments must be safe, suitable and support every child’s participation. That expectation cannot be met if ratio changes, or inclusion staffing, simply add bodies into unchanged, cluttered, poorly-zoned rooms.
The ECEC sector often talks about inclusion as though it is primarily a staffing and training task. The environment is treated as a secondary layer: nice to have, expensive to change, often deferred.
That framing is outdated.
Environment and layout determine whether staffing works. Consider the difference between:
- a room with clear zones, predictable pathways, quiet corners and strong visual cues, versus
- a room with cluttered walls, noisy bottlenecks, mixed-sensory activities piled together, and constant cross-traffic through play
Both rooms can run the same ratio. Only one is set up to support calm engagement, supervision and inclusive practice.
A common response to sensory stress is to create one designated calming space, sometimes positioned as a special provision for a subset of children. That approach can unintentionally separate children from the community of the room and place regulation “somewhere else”, rather than embedding it into everyday practice.
A stronger direction is to build small, accessible withdrawal options throughout the environment, brief, normalised places any child can use to reset without being removed from the learning community. These are not “special rooms”. They are practical design features that reduce escalation and support self-regulation as part of ordinary childhood.
Many services unintentionally create high-stress days through transition volume and transition design. Too many moves, too much waiting, too many sudden sensory changes.
Unnecessary transitions between high- and low-stimulation zones, especially indoor–outdoor movement with sudden shifts in noise, light, temperature and crowd density, can be hard for many children. They also consume educator time that should be spent in sustained play, interaction and teaching.
Services do not need a rebuild to improve this. They need a transition lens:
- map every transition across the day
- remove those that exist only because “that’s how it’s always been done”
- design a “pause point” where children can adjust before entering a new sensory environment
- strengthen cues that help children predict what happens next
The reform agenda should stop treating ratios and environments as separate conversations. Quality requires both, by design:
- Shift ratio reform from “minimums” to “conditions”If ratios are used as a quality lever, policy must also address the conditions that allow ratios to deliver quality: group size, room size, layout and peak-time congestion. Ratio discussions that ignore space are incomplete.
- Add an “adult density” lens to service planning and assessmentServices rarely plan for the total number of adults occupying a room at peak times, rostered educators plus additional inclusion/support roles plus students. This is now a frontline quality issue. Rostering should consider adult load per room, not just service-wide ratio calculations.
- Make low-cost environment audits part of Quality Improvement PlanningNot every service can renovate. Every service can audit:
- visual clutter and display load
- storage and resource access
- zoning clarity and traffic flow
- sensory hotspots (meals, entry points, narrow hallways)
- withdrawal options indoors and outdoors
- Update design and licensing guidance so inclusion is not optionalMany neuroinclusive design features are recognised as good practice, but not consistently embedded into minimum guidance. When inclusive features are treated as discretionary, they are the first to be cut under budget pressure. Minimum expectations should better reflect what the system now demands: inclusive participation, regulation support and safe supervision.
- Fund environment upgrades alongside staffing initiatives
Governments routinely invest in workforce initiatives, but far less consistently in the physical conditions that determine whether workforce investment works. If policy expects services to strengthen inclusion capacity and lift practice quality, funding should support a three-part package:
- staffing that enables reasonable adjustments, including time for planning, collaboration and responsive support
- environment improvements that reduce sensory overload and crowding pressures, and make supervision easier through better zoning, storage and sightlines
- specialised teachers who can strengthen the early learning environment through evidence-informed pedagogy, coaching and targeted support, particularly for inclusion, behaviour guidance, curriculum implementation and mentoring educators to embed adjustments into everyday practice
6. Co-design with educators, families and childrenEnvironment reform cannot be imposed as a generic template. Educators and families know where pressure points sit in the day. Children show, through behaviour, movement and withdrawal, what spaces feel safe or overwhelming. Co-design should be a standard planning approach, not a special project.
Ratios matter. They will always matter.
But the ECEC sector is past the point where ratios can be treated as a standalone solution. A service can increase staffing and still create worse daily conditions if the environment and routines are not redesigned to match the reality of the room.
The next phase of quality reform should stop asking whether ratios are high enough in isolation. The better question is this:
Do ratios, environments and operational design work together to make safety, inclusion and high-quality practice achievable, every day, in real rooms, with real children and real educators?
If the answer is no, the reform task is clear. Ratios and environments must be treated as one system, not two separate compliance conversations.
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