Governance of Early Care and Education Politics and Policy in France and Sweden Michelle J. Neuman,...

Governance of Early Care and Governance of Early Care and EducationEducation

Politics and Policy in France and SwedenPolitics and Policy in France and Sweden

Michelle J. Neuman, Ph.D.Michelle J. Neuman, Ph.D.Columbia UniversityColumbia University

EECERA Conference, Prague – 31 August, EECERA Conference, Prague – 31 August, 20072007

Research funding from: German Marshall Fund of the U.S., American-Scandinavian Foundation, Council for European Studies/Florence Gould Foundation, Teachers

College Office for Policy Research, and Columbia University Public Policy Consortium.

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Rationale for the StudyRationale for the Study

Why governance of ECE?

Why France and Sweden?

Why 1980-2005?

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Three Institutional Dimensions of Three Institutional Dimensions of ECE GovernanceECE Governance

ECE Governance

Administrativeintegration

Privatization Decentralization

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Case SelectionCase Selection

Case study country

Administrative integration

Privatization

Decentralization

FRANCEDivided auspices education: 2-6 yrs health/social: 0-3 yrs

MediumEducation: LowCare: High

SWEDENUnified auspices education: 0-7 yrs

Low Medium

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Research QuestionsResearch Questions

1. How does the national context influence ECE governance?

2. Which actors and ideas (politics) benefit under different institutional arrangements?

3. What are the consequences for ECE policy outcomes (quality, access, coherence)?

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Conceptual Framework: Conceptual Framework: Governance of Early Care & Governance of Early Care & EducationEducation

ECE Politics

ECE GovernanceNational Context ECE Policy Outcomes

1

2

3

Note: Numbers refer to research questions

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Research DesignResearch Design

Data collection: Fieldwork- Archival and document research- Semi-structured interviews

Comparative, qualitative case study analysis

Today: Focus on decentralization findings

(De)centralization of ECE in (De)centralization of ECE in France and Sweden: Origins France and Sweden: Origins and Processand Process

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Conceptual Framework: Conceptual Framework: Decentralization of ECEDecentralization of ECE

ECE Politics

DecentralizationNational Context ECE Policy Outcomes

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France: Limited and Incremental France: Limited and Incremental Institutional Change in Ed. SystemInstitutional Change in Ed. System

Strong Republican values include centralization

Since 19th century, preschool part of education system

Early 1980s, Socialists initiated ed. decentralization

1989 – legal right to preschool; universal coverage 3-5

Since 1990, few administrative reforms to preschools

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France: Universal Coverage of 3-5s France: Universal Coverage of 3-5s in Preschools by 1990in Preschools by 1990

0

10

20

30

40

50

60

70

80

90

100

1960-61 1970-71 1980-81 1990-91 2001-02

2 years

3 years

4 years

5 years

Source: OECD

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France: Decentralization and France: Decentralization and Diversification for Infants-toddlersDiversification for Infants-toddlers

Child care linked to health and social policy domains

1981 - Expansion of crèches = national priority

1986 – Decentralized child care administration

No clear legal responsibility for child care

1988 – “childhood contracts” provide incentives to local authorities to expand and improve provision

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France: Paradox of “Free Choice”France: Paradox of “Free Choice”

Since 1990s – rhetoric of “free choice”

Focus on supporting family day care and nannies

More generous long paid parental leave policies

Concern with unemployment underlies policy

Recent reforms seek to expand private provision

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France: Most Children under 3 cared for France: Most Children under 3 cared for by Parents or a Family Day Care Providerby Parents or a Family Day Care Provider

Parents, 64%

Grandparents, 4%

Creches, 8%

Assistantes Maternelles, 18%

Other, 4%Other individual arrangements,

2%

Drees: 2002

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France: Geographic Disparities in Crèches

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Sweden: “Educare” ApproachSweden: “Educare” Approach

Early childhood – key part of welfare state

1970s and 80s – Expansion of local child care, centralized funding, and regulations

1991-1994 - Non-socialist government Rising unemployment & large budget deficits Supported private for-profit providers Created a “care” allowance instead of formal services

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Sweden: Shift to Goal-GoverningSweden: Shift to Goal-Governing

1991 – Local Government Act = shift from central rules to “goal governing” of ECE

Earmarked funds block grants to municipalities

1995 – legal requirement for municipalities to provide child care to 1-6 year olds with working parents

Local governments facing budget crunch responded with higher fees and lower quality standards

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Sweden: Recentralization?Sweden: Recentralization?

1995 - Return of Social Democrats to government

Improved economy, less unemployment

1996-2003 – “Lifelong learning” reforms Shift all ECE to Ministry of Education Preschool curriculum – pedagogical steering Universal preschool for 4 and 5 year olds Maximum fee to rectify disparities in local fees

Targeted funding to steer decentralized system

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Sweden: Increasing Proportion of Children Sweden: Increasing Proportion of Children Enrolled in Preschool since mid-1970sEnrolled in Preschool since mid-1970s

0

10

20

30

40

50

60

70

80

90

100

1975

1980

1985

1990

1994

1995

1996

1997

1998

1999

2000

2001

2002

2003

Age 5

Age 4

Age 3

Age 2

Age 1

Age 0

Comparative AnalysisComparative AnalysisConsequences for policy and Consequences for policy and politicspolitics

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Consequences of Decentralization Consequences of Decentralization for Accessfor Access

Geographical disparities - less in Sweden than in France

Greater parent “choice”, but may not benefit children

Family day care: increase in France decrease in Sweden

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Sweden: More Families Choosing Sweden: More Families Choosing Preschool Over Family Day Care, 1975–Preschool Over Family Day Care, 1975–20032003

Source: Skolverket

0

50,000

100,000

150,000

200,000

250,000

300,000

350,000

400,000

Preschool

Family Day Care

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France: Rising Numbers of Authorized and France: Rising Numbers of Authorized and Employed Family Day Care ProvidersEmployed Family Day Care Providers

0

50000

100000

150000

200000

250000

300000

350000

400000

1990 1992 1994 1996 1998 2000

Authorizations

Employed

Source: DREES, 2003

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Consequences of Decentralization Consequences of Decentralization for Qualityfor Quality

Deregulation = larger group sizes and child-staff ratios in SwedenTargeted financial incentives support can quality improvement

1314.3 14.4

16.717.5 17.2

0

2

4

6

8

10

12

14

16

18

20

1980 1985 1990 1995 2000 2003

Deregulation

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Consequences of Decentralization Consequences of Decentralization for Coherencefor Coherence

Some improved local coordination across ECE services

More challenging in France because of different levels of responsibility – 2 strong sectors

Lack of coherence between individual and group child care raises concerns about child well-being

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ImplicationsImplications1. Decentralization raises serious equity concerns

2. Local politics and resources determine services available to families

3. Shifts political focus to new actors and institutions

4. Freedom and democracy = the need for local capacity

5. National steering & targeted funding reduce inequities

Institutional history, economic context, and ideologyplay roles France and Sweden on different paths