Studies have consistently demonstrated that the early years – from birth to age five – are critical for cognitive, emotional, and social development. High-quality pre-primary education helps children develop foundational skills that are essential for success in primary school and beyond.

In Sri Lanka, where free education is a proud national hallmark from primary through tertiary levels, a hidden crisis is unfolding in the earliest phase of schooling: pre-primary education. Despite the proven importance of early childhood learning, access to preschools remains limited for children from low-income families, primarily due to prohibitive fees, according to a new statement by Human Rights Watch (HRW).

The global human rights watchdog submitted its findings to the Working Group on the Optional Protocol to the Convention on the Rights of the Child on a communications procedure on May 9, 2025. The submission highlighted a worldwide neglect of early childhood education rights, with Sri Lanka standing as a troubling example.

Cost as a Barrier

“In Sri Lanka, a preschool teacher reported to Human Rights Watch in 2025 that students must pay 1000 Sri Lankan Rupees (US$3.50) monthly,” the report said. “When families cannot pay, children do not come ‘for some months,’ she said. In January 2025, only 3 out of 20 students in her class paid.”

These fees, while appearing modest, are insurmountable for families living below the international poverty line. An overwhelming number of Sri Lankan households subsist on less than Rs. 1000 a day, or roughly Rs. 30,000 a month. These families are compelled to make impossible choices – often between food and education – leading many to defer or forgo early education for their children.

A Sri Lankan education officer acknowledged the stark inequality, telling HRW, “If you can’t afford to pay, there is no space in the system… Only the families that have money can send their children to preschool.”

The situation is compounded by inadequate state provisioning. Data from Sri Lanka’s 2018 National Census of Early Childhood Development Centres shows that only 19.8 percent of the country’s 19,668 preschools are public institutions. A staggering 88.2 percent of preschools charge tuition, creating a de facto barrier for the economically disadvantaged.

A Missed Opportunity

Studies have consistently demonstrated that the early years – from birth to age five – are critical for cognitive, emotional, and social development. High-quality pre-primary education helps children develop foundational skills that are essential for success in primary school and beyond. It also offers benefits in terms of better health, increased future earnings, and reduced crime rates.

The absence of this foundation is already affecting primary education outcomes. HRW interviewed a primary school manager in a poverty-stricken area who reported that 70 percent of incoming students had not received any form of pre-primary education. These children, the manager said, struggled more than their peers and faced substantial learning difficulties.

“Quality pre-primary education builds cognitive, social, and emotional skills during the most formative years,” HRW noted. “When pre-primary education is not available free, cost prevents children from low-income families from participating.”

Even when pre-primary centres are geographically accessible, they are not economically inclusive. The National Policy on Preschool Education itself acknowledges that low attendance rates in some districts may stem from high enrolment fees, the absence of facilities near homes, and parental scepticism about the value of early education.

A Global Perspective

The Sri Lankan case is not unique but emblematic of a broader global neglect. HRW pointed out that while 68 percent of national constitutions around the world explicitly protect the right to primary education, very few include any reference to early childhood education.

Ireland provides a stark contrast. In 2010, the Irish government expanded free preschool access to all children aged four. Enrolment surged and soon became nearly universal. This success story underscores the transformative impact that public policy can have on early education participation rates.

The United Nations Sustainable Development Goals (SDGs) also affirm the importance of early education. Goal 4.2 specifically aims to “ensure that all girls and boys have access to quality early childhood development, care and pre-primary education so that they are ready for primary education” by 2030.

A Special Need for Inclusivity

HRW also emphasised the importance of early education for children with disabilities. These children face compounded barriers due to stigma, inadequate resources, and discrimination. Early exposure to education can help them develop necessary skills and build resilience. Moreover, inclusive early education reduces social stigmatisation and fosters acceptance from an early age.

Currently, Sri Lanka lacks sufficient mechanisms to ensure inclusive and equitable access for children with special needs, particularly at the preschool level. Many preschools are ill-equipped to support such learners, and the lack of trained staff further exacerbates the issue.

Constitutional Silence and Policy Gaps

Although Sri Lanka boasts a national literacy rate of 92 percent and prides itself on its free education system, the gap in pre-primary education reveals significant policy and constitutional oversights. HRW’s report notes that constitutional references to early childhood education are “almost non-existent,” a silence that echoes in budgetary allocations and public service provisions.

This constitutional omission has led to a situation where early childhood education exists in a legal and policy vacuum—neither mandated nor systematically supported. As a result, it remains optional and largely privatised, accessible primarily to those who can afford it.

Human Rights Watch urges governments, including Sri Lanka’s, to explicitly recognise early childhood education as a right and incorporate it into national laws and constitutional frameworks. It also calls for the expansion of free, quality pre-primary education, especially for marginalised communities.

The organisation further recommends increased government investment in public preschools, targeted subsidies for low-income families, and greater emphasis on inclusivity for children with disabilities.

“Governments should build inclusive early education systems that include children with disabilities and ensure that barriers to access, including fees, do not prevent children from low-income families from attending,” the statement concluded.

Sri Lanka’s model of free education is often cited as a beacon in South Asia, but it begins too late for many of its children. By overlooking the crucial stage of early childhood education, the country is failing to lay a solid foundation for future learning and development. If Sri Lanka is to meet its SDG commitments and truly offer education for all, the invisible barrier of preschool fees must be dismantled.

Until then, the first and most crucial step in a Sri Lankan child’s educational journey remains a privilege of the few, not a right for all, says the HRW report.