In most European countries a 'childcare gap' exists: that is, a discrepancy between the demand for and provision of childcare. Among the countries that are succeeding in closing the gap are the Nordic welfare states. Hence, knowledge about how childcare provision in these countries has developed is of wide interest. This article stresses the importance of studying how the interactive processes of changing provision and demand explain the building up and the closing of national childcare gaps. Although there are similarities in the development of Nordic childcare services, some differences stand out. The comparison indicates that complex societal processes interact in shaping provision and demand. These dynamics are explored in more detail in the Norwegian case, where the interactive processes have produced an ever-increasing demand for childcare. The demand side is crucial, particularly the role of mothers in generating momentum for policy change. Mothers' changing labour market patterns and their demand for childcare are important driving forces for policy change.

The way that welfare policies influence the interpretative processes of social actors is attracting increasing attention. In this article, we investigate policy change impacts on ideas mothers have about the best form of care for their children. The data are taken from representative surveys among mothers of preschool-age children in 2002 and 2010 in Norway. The surveys cover a decade of marked reforms in childcare services with regard to the supply of places, parents’ fees and the right to be given a place in care. Policy change gave rise to major shifts in attitude. From conditional attitudes to the suitability of institutional care, the majority view shifted towards ‘childcare services only’ being considered the best form of care for preschool-age children. This occurred among mothers in all socio-economic groups and in all parts of the country. Based on policy feedback theories, mechanisms likely to have caused this shift – policy visibility, proximity and timing – are considered.

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To what extent has the traditional male provider model shifted towards a model of equal economic partnership in the Scandinavian welfare states, and how can current social practices and attitudes be explained? In contrast to much recent welfare state research, this article emphasizes differences within Scandinavia, arguing that national structural, cultural and political configurations have contributed to differences among the Scandinavian welfare states in the transition toward gender equality in economic provision.