Consultation Response to the Scottish Government – Child Poverty Strategy - The Children and Young People's Commissioner Scotland

April 2025

Child Poverty levels in Scotland remain unacceptably high. Article 26 of the UNCRC recognises a right for all children to benefit from social security and Article 27 requires states to guarantee children’s rights to a standard of living adequate for their physical, mental, moral and social development. The UNCRC requires states to provide financial and material assistance to the families of children in poverty, but also to provide parents with support in meeting their responsibilities for their children (Article 27 (2) and (3)).

The latest data shows a reduction in poverty levels for some groups of children, largely credited to the Scottish Child payment.[1] However, It is estimated that around 240,000 children (23%) were living in relative poverty after housing costs in 2021-2024.[2] We believe that Scotland could still reach the targets outlined in the Child Poverty (Scotland) Act 2017 if the right actions are urgently taken.

Our office has recently prepared a report entitled ‘Children Experiencing Poverty in Scotland: A Review of Sources Reflecting Children’s Voices and Experiences’, this contains an overview of what children and young people have told us about their experience of poverty since the pandemic. It collates sources from a number of organisations working to support those children, many of whom are in the third sector, showing the strength and importance of their work.

Question: Do you think these are the right themes to focus on?

We broadly agree with the themes that have been identified and have outlined some additional considerations.

The Government has identified six priority family groups: lone parent families; families with a disabled adult or child; larger families with three or more children; minority ethnic families; families with children under the age of one; and families with mothers under the age of 25. This collectively accounts for around 90% of children.[3] We would like to see more consideration given to measures which reach children not within those six priority family groups. Priority should also be given to care experienced young people, 16/ 17-year-olds living independently, and young people/ families with no recourse to public funds.

Increasing earned incomes by supporting and providing opportunities for parents and carers, to enter, sustain and progress in work.

Access to adequate and appropriate childcare can play an important part in addressing poverty and in meeting states’ obligations to support parents (Article 27(3)). The current offer of 1,140 free hours of early learning and childcare, for all three- and four-year-olds, and eligible two-year olds (primarily those in care or in a household on certain low-income and out-of-work benefits) partly addresses this. However, many low-income families face barriers to finding appropriate child-care even with the free hours offered, including a lack of flexibility or, particularly in rural and island communities, the cost of transport. Funded childcare is not available for babies, one year olds and most 2-year-olds, which has a disproportionate and significant impact on single parents.

Availability and affordability of wrap around childcare for both school age and pre-school children continues to be a barrier to employment, or a significant expense to those in employment. Those on low incomes, if in employment, are more likely to be in irregular working hour patterns which fall outside a traditional 9-5 framework. There is a lack of appropriate child-care to accommodate this. Some childcare facilities will only provide for a half day which means it is difficult to find employment to fit those hours. There is also a lack of appropriate childcare for disabled children[4].

Some of these parent experiences are reflected in these quotes;

“[Restrictions on when hours can be chosen] are a factor that prevents a lot of people entering work.” Parent in focus group[5]

“They only take her down for three hours. That’s not good enough for any work. […]The government could extend this a little bit.” Parent in focus group [6]

“Council-run nurseries, they either do AM or PM, Monday to Friday. So, if I wanted to work, that wouldn’t work for me because there’s no job that gives you nine to 12 in the morning.” Parent in focus group [7]

Reducing the costs of living and maximising incomes from social security to allow families to live dignified lives and meet their basic needs.

Government’s must “take all necessary measures” (Article 26 UNCRC) to guarantee the right of every child to benefit from social security.

Many children will benefit from the removal of the two-child cap when Scottish Government actions this next year. The Child Poverty Action Group estimates that scrapping the two-child cap in Scotland could lift 15,000 children out of poverty, while the Scottish Fiscal Commission estimates that 42,000 children in Scotland will benefit. This policy has the potential to protect and promote the rights of children in Scotland by keeping thousands of children and young people out of poverty and reducing those already experiencing it[8].

However, recent modelling from the Fraser of Alllander Institute shows that mitigating the two-child cap will not in itself be enough to meet Scotland’s child poverty targets. There are other measures that the Scottish Government must also prioritise on their journey to ending child poverty.[9] We echo the calls of campaigners to increase the Scottish Child payment in addition to mitigating the two-child limit[10].

Delivering holistic and whole family support to improve outcomes and wellbeing and enable families to better engage with other services that directly increase their incomes.

We welcome a drive towards delivering while family support and note the positive outcomes from these approaches. Such approaches supplement and enhance direct financial support for children in poverty.

Services must ensure they take a child centred and rights respecting approach and consider the individual needs of children and young people who are experiencing poverty as part of whole family support. It is important to ensure that children’s rights are the funnel through which every decision and support service is viewed.

Much of this support is provided by third sector organisation. For this theme to be delivered, the third sector needs to be properly and fairly funded. They provide vital public services; are often front line in the delivery of them and reach children and families in ways many statutory services cannot. Fair funding is also important to address the extent of in work poverty among third sector workers, ensuring that employees are given job security and services can be delivered reliably (through long term funding) and ensuring that a living wage can be paid.

We frequently hear that these services are under threat due to being underfunded or having to make restrictions on services due to the insecure nature of their funding.

Supporting children and young people to reach their full potential and to break the cycle of poverty in the longer term.

We support the investment in preventative measures to tackle child poverty. An investment must be made in the lives of children from a young age. This not only supports individual children but society as a whole. Child poverty results in health inequalities, experiences of homelessness in adulthood and an increase in crime rates – all of these are a cost to wider society.

Question: Are there other key strategic themes we should consider?

The following additional themes should be considered.

Housing

At a time when the Scottish Government has declared a housing crisis there is clear need for specific and targeted focus on this area. Whilst this can be captured within the remit of ‘reducing the costs of living’, there needs to be more emphasis on the housing issues that children face in Scotland. Approximately 15,500 children are homelessness, with around 10,000 of these living in temporary and hotel type accommodation.[11] A report by our office and recent research conducted by Shelter highlight the damaging impact of living in such temporary accommodation.[12]

Every child has a right to safe, adequate and affordable housing (UNCRC Article 27(3)). Housing is a foundation from which other measures to tackle child poverty can build. There is a significant lack of social housing, particularly that which is suitable for disabled children and larger families. There is also a need for supported housing which is suitable for young people who are leaving care and unaccompanied asylum seeking children.

Climate change

Climate change will have a disproportionate impact on children, particularly those experiencing poverty. If changes to the weather become more severe – whether this is more extremes in temperature or damage from flood or wind damage – the costs of adapting will be much harder to meet for these families. Low-income households are 8 times more likely to be flooded yet are less likely to be covered by insurance due to poverty premiums applied to less well-off areas.[13] Climate change also contributes to rising food prices as food production is affected by weather disruption.[14]

Question: What is working well and what actions should Scottish Government and partners either continue to do or to do more of?

Scottish Child Payment

The roll out of the Scottish Child Payment has undoubtably made a difference in the lives of children and young people experiencing poverty. The difference in poverty levels in Scotland compared to the rest of the UK demonstrates its impact. We encourage that this be expanded, including to children over 16 to address financial disincentives to remain in education or training.

Two Child Limit

We have called upon the UK Government to abolish the two-child limit and welcome the Scottish Government’s intention to mitigate its effect. The two-child limit is discriminatory by design and incompatible with Articles 2 and 27 of the UNCRC. Recent data shows that, while poverty levels for some groups of children improved slightly, they are increasing in households where there are 3 or more children.[15]

Public Debt

We support Aberlour’s campaign to tackle public debt which their research has shown is a key contributing factor to levels of child poverty.[16] We welcomed the Scottish Government’s School meal debt fund which helped to wipe the debt owed by around 30,000 families in Scotland. We would like to see that these examples become permanent features.[17]

Question: Are there policies, actions or approaches that the Scottish Government and/or partners should either stop or do differently?

The Scottish Government needs to develop its approach to children’s participation. Children and young people experiencing poverty are well placed to give direct feedback on how policy implementation is working and should be consulted as the delivery plan is developed and delivered. Article 12 of the UNCRC, read with General Comment 12[18], should be understood as a right not just to have views heard but to participate in decision making. The Scottish Government has a duty to support and facilitate the participation of a wide range of children and young people. Too often, consultation with children and young people is narrow, tokenistic and intended to endorse, not inform, policy development. Where third sector organisations are relied upon to support direct engagement work with children and young people they should be properly funded to do so.

Question: Are there new policies, actions or approaches that Scottish Government should consider implementing?

We would support continued reform of the social security system to further embed human rights principles and greater simplification to remove barriers and ensure social security is easy to access. The use of stigmatising language and policy must be reduced, with a reframing of poverty as an issue of economic injustice.

Question: What more can we do to understand the challenges being faced by the family at greatest risk of poverty, including the six priority families identified to ensure their specific and interconnected needs are met?

Ongoing participation work with children and young people experiencing poverty (delivered through funding of relevant third sector organisations), is an important way to fully understand the challenges faced by families at greatest risk of poverty.

There is a need to improve data recording – especially that relating to intersecting inequalities.

Question: What targeted action could be taken to tackle inequalities faced by marginalised groups, to help raise their incomes and improve their outcomes? This could include specialist support for one or more groups.

Children living independently

In Scotland, there are a number of 16- and 17-year-olds who live independently and either work or claim benefits to support themselves. They may or may not be in full/ part time education. This can include those who are ‘care leavers’[19], those who are care-experienced, unaccompanied asylum-seeking/ refugee young people and young parents. There is a strong need to recognise the vulnerabilities of this group and associated risks of poverty. Yet too often, 16- and 17-year-olds are excluded from discussions about child poverty and from attempts to address it. This is not compatible with Articles 1 and 2 of the UNCRC.

Children and young people living independently, with little or no family support, do not have lower living costs than adults, yet they are discriminated against in both pay and benefits legislation. Universal Credit payments for those under 25 are lower than those for individuals aged 25 or over. Specifically, the standard allowance for single claimants under 25 is £316.98 per month, while for those aged 25 or over, it’s £400.14 per month. The minimum wage for under 18’s is £7.55, for those aged 18-20 is it £10.00 while the minimum wage for all adults above 21 is £12.21.

Unaccompanied asylum-seeking young people are not permitted to work and have no recourse to public funds. Instead, they receive an allowance of around £50 a week. The experiences of living on such a low income have been captured by ‘Young People’s Voices’, a group of unaccompanied asylum-seeking young people, supported by Guardianship Scotland[20] .All the participants in this group were living independently from family as unaccompanied asylum seekers. They said the following –

“Friends are wearing coats in their accommodation as they cannot afford the heating.”

“I get £67 per week. When I lived in Inverness this was enough to buy all my food. Now I live in [village] it is more difficult because they don’t have Lidl or Aldi, only a Co-op which is more expensive.”

For further information, please contact Kate Thompson. Policy Officer at kate.thompson@cypcs.org.uk

[1] New child poverty data and updates on methodological changes – Scottish Health Equity Research Unit

[2] Poverty and Income Inequality in Scotland 2021-24

[3] Tackling child poverty delivery plan 2022-2026 – annex 7: equality impact assessment – gov.scot

[4] Overview of the provision in Scotland of early learning and childcare for children with profound and multiple learning disabilities with life-limiting or life-threating conditions – Health and Social Care Alliance Scotland

[5] tipping-the-scales-may23.pdf

[6] stc-009_stc-jrf_poverty_report_10 (1).pdf

[7] stc-009_stc-jrf_poverty_report_10 (1).pdf

[8] Consultation Paper – Mitigation of the two-child cap

[9] Policy packages to meet Scotland’s child poverty targets | FAI

[10] Child poverty campaigners welcome Scottish budget two-child limit mitigation | CPAG

[11] Homelessness statistics in Scotland – Shelter Scotland