On December 22, 2025, Chinese lawmakers commenced the first review of the draft Childcare Services Law, the country's inaugural national legislation dedicated to regulating and promoting childcare for children under the age of three. The bill was submitted for deliberation to the 19th session of the Standing Committee of the 14th National People's Congress (NPC), China's top legislative body, during its meeting in Beijing from December 22 to 27.
The draft, comprising eight chapters and 76 articles, adopts a "demand-driven, problem-focused approach" to address persistent challenges in the sector, including inconsistent service quality, inadequate caregiver qualifications, and insufficient regulatory oversight. It aims to establish a comprehensive legal framework for childcare institutions and providers, emphasizing the creation of a "diverse, safe, high-quality, reasonably priced, and accessible" public childcare system. Officials highlighted its role in reducing household child-rearing costs, fostering a "fertility-friendly society," and supporting high-quality population development.
Luo Shugang, chairman of the NPC's Education, Science, Culture and Public Health Committee, introduced the draft, noting that preparatory work began in 2023 with extensive field research across provinces like Beijing, Guangdong, Heilongjiang, and Inner Mongolia. The legislation builds on existing policies, such as the 2019 guidance on promoting childcare for infants under three, by providing stronger legal protections.
Current statistics underscore the urgency: China has approximately 126,000 childcare institutions offering 6.66 million places, yet faces around 30 million children under age three, resulting in a significant supply-demand gap. Recent expansions have increased slots to over 4.7 per 1,000 people as of October 2025, surpassing 14th Five-Year Plan targets early, but utilization and quality remain concerns.
- Key provisions in the draft include:
- Institutional standards: Childcare centers must meet requirements for staffing ratios, facilities, funding, and safety protocols before approval. Institutions are required to publicly display licenses and implement robust safety management systems, including video surveillance in critical areas.
- Caregiver qualifications: Establishment of a national qualification system for childcare workers. Background checks are mandatory, barring individuals with records of violence, trafficking, sexual offenses, abandonment, or abuse from employment.
- Service guidelines: Emphasis on play-based learning, restrictions on screen time, stringent food safety measures, and protection of children's rights, including prohibitions on actions harming physical or mental health.
- Government responsibilities: Local authorities must incorporate childcare into economic and social development plans, secure land for facilities in new residential areas, and streamline approvals for conversions. Encouragement for subsidies, service purchases, and inclusion of inclusive (pruhui) childcare in basic public services.
- Oversight and accountability: Enhanced supervision, with clear legal liabilities for violations to ensure child safety and institutional compliance.
The draft aligns with broader pronatalist measures amid China's demographic challenges, including declining birth rates and an aging population. In July 2025, a national childcare subsidy program was launched, providing 3,600 yuan annually per child under three, backed by central government funding of around 90 billion yuan. Free preschool education policies have also saved families approximately 20 billion yuan in the autumn 2025 semester alone.
Experts view the law as pivotal for alleviating burdens on dual-income families, where high costs and limited access deter parenthood. Independent demographer He Yafu noted that affordable, inclusive childcare could boost fertility intentions, though sustained efforts beyond legislation are needed given shrinking childbearing-age populations.
The first reading allows for initial debates, with potential revisions before subsequent reviews and a possible vote. This marks a milestone in institutionalizing support for early childhood care, transitioning from fragmented local regulations to a unified national standard.
The submission reflects China's multifaceted approach to reversing population decline, combining financial incentives, service expansion, and legal safeguards to encourage higher birth rates and ensure child well-being.
