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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.
2
Rationale for the StudyRationale for the Study
Why governance of ECE?
Why France and Sweden?
Why 1980-2005?
3
Three Institutional Dimensions of Three Institutional Dimensions of ECE GovernanceECE Governance
ECE Governance
Administrativeintegration
Privatization Decentralization
4
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
5
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)?
6
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
7
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
9
Conceptual Framework: Conceptual Framework: Decentralization of ECEDecentralization of ECE
ECE Politics
DecentralizationNational Context ECE Policy Outcomes
10
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
11
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
12
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
13
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
14
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
15
France: Geographic Disparities in Crèches
16
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
17
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
18
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
19
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
22
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
23
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
24
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
25
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
26
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