Two Years of Pilot Implementation of the 'Universal Childcare System': Real-World Usage and Operational Challenges Seen from the Front Lines with Double the Applicant Rate

The "Universal Childcare System" (Children and Families Agency), which allows all children to use regular childcare services at nursery facilities regardless of their parents' employment status, will be fully implemented nationwide starting in April 2026.

Pico Nursery Kugayama Station Front (Suginami Ward, Tokyo), a licensed nursery school operated by the social welfare corporation Kaze no Mori, has been piloting this system since 2024, having accepted 30 children to date. This release introduces the specific usage realities and on-site challenges identified through this pilot implementation.

[Image: Pico Nursery Kugayama Station Front - Pico room]

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Data on the Pilot Implementation of the "Universal Childcare System" at Kaze no Mori Pico Nursery Kugayama Station Front

[Table: Item/Fiscal Year | FY2024 | FY2025]
[Row: Applications/Capacity | 31 children/15 capacity | 30 children/15 capacity]
[Row: Usage Frequency | Once a week | Once a week]

In fiscal year 2025, there were approximately twice as many applicants as the capacity, highlighting the high level of need for this system.

◆ Parent Feedback
"I am currently on childcare leave and cannot use regular nursery school services, but since giving birth to my second child, I have been using this system frequently to create time for each of my children, and it has been a huge help."

Benefits and Drawbacks Seen Through Actual Operation

On the other hand, actual operation has brought to light challenges that can only be seen from the front lines.

The significance of this system lies in its ability to support local child-rearing families, not just those already enrolled in the nursery. By using the nursery regularly, it is expected that children will develop social skills through diverse interactions, and that it will provide parents with a sense of security and help alleviate isolation.

However, the introduction of this system has undeniably increased the burden on nursery schools and childcare workers. Under the current subsidy system, for example, the rate for a 0-year-old is set at 1,300 yen per hour. There is no mechanism to cover fixed costs, creating a structure where the burden of personnel expenses becomes significant in actual operation. It is difficult to secure sufficient staff, and the frank feeling on the ground is that "the more children we take in, the greater the burden becomes."

For the sustainable operation of the system, it is essential to redesign the system and review support based on the realities of the front lines.

■ Benefits
- Children acquire social skills by experiencing group life
- Understanding the characteristics and development of each individual child
- Leads to reduced child-rearing burdens and the elimination of isolated parenting
- Creates a sense of security for parents or the generation becoming parents, potentially leading to the choice to have children

■ Drawbacks
- Increased burden on the childcare site (safety risks, dealing with parents, complex administrative work...)
- Risk of thinning out regular childcare and lowering the quality of care for enrolled children
- Worsening of the childcare worker shortage (the nursery is responsible for securing staff)
- Regional disparities in capacity slots can make usage difficult, causing anxiety for parents

◆ Feedback from Front-line Childcare Workers
"I feel that regular usage makes it easier to build relationships with children and parents, leading to more attentive support. However, if the environment (nursery rooms and personnel) is not properly prepared, it is difficult to realize the benefits or provide detailed care. The national system is complex, and the administrative volume, such as explaining things to parents, is high, taking time away from work other than interacting with the children."

About the "Universal Childcare System"

The "Universal Childcare System" is a new childcare system that allows children under the age of 3 to use services flexibly, such as by the hour, within a set monthly limit, regardless of employment requirements. It was created to support the growth of all children, establish high-quality developmental environments, and strengthen support for child-rearing families regardless of their diverse work styles or lifestyles.

[Images: Excerpts from the Children and Families Agency's "Universal Childcare System" - Basic Materials Collection]

It began as a pilot project in fiscal year 2024, and while 17 nurseries stepped forward, there were many challenges, and in Suginami Ward, Tokyo, only our nursery implemented it.

In implementing it, our nursery has been preparing the system by expanding facilities and securing childcare workers.

◆ Positioning of the System and Future Outlook
It began as a pilot in fiscal year 2024 and was institutionalized in fiscal year 2025 as a regional child-rearing support project based on the Child and Child-rearing Support Act. From fiscal year 2026, it will be implemented in municipalities nationwide as a new benefit.

◆ Current Situation on the Front Lines
While this system is attracting attention as a potential use for child-rearing support funds, and while there is high demand from parents, there are cases where no participating nurseries exist in certain regions, meaning the system is still in a developmental stage.

On the actual front lines, trial and error continues between the significance of the system and the operational burden.

Significance of Expanding Regional Child-rearing Support

We want to properly prepare a secure environment and support regional child-rearing.

I feel that the need for the "Universal Childcare System" is extremely high. We believe it is a system that aligns with our desire to support regional child-rearing, as we can have contact with many parents, not just those with children already enrolled. Through this system, we want to aim for a society where people feel happy about giving birth to and raising children.

However, with the entire childcare industry facing the major challenge of a chronic shortage of childcare workers, the nationwide introduction of this system will likely tighten the noose on childcare workers and make the front lines even more difficult. From the perspective of childcare providers, the drawbacks certainly seem to outweigh the benefits, and there is no doubt that there are barriers to its widespread adoption.

For nursery schools, this is a time to hold firm.

Securing childcare personnel is an urgent task, and what is needed for that is the improvement of working conditions for childcare workers—namely, an increase in government subsidies. If we do not reduce the number of sites that "want to do it but cannot," the system itself will not be able to function.

We would be grateful if you could cover the system and the front lines, and use this as an opportunity to convey the need for improved working conditions for childcare workers to as many people as possible.

[Image: Social Welfare Corporation Kaze no Mori, General Manager Miki Nogami]

Social Welfare Corporation Kaze no Mori
General Manager: Miki Nogami

Practices a 2x childcare worker-to-child ratio and has achieved an 18x hiring multiplier.
Faces system operation from both the front-line and management perspectives.