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Central among a range of reforms and policy measures aimed at enhancing the quality and social cohesion of Norwegian early childhood education and care (ECEC) services is the 2017 Framework Plan for Kindergartens. In this article, we investigate the policy formation process and how framework plan reform has been carried out by public and private stakeholders at different levels. The reform is explored as institutional layering, referring to theoretical contributions that stress the role of incremental development and gradual institutional change. We ask: What are the policies added, and to what extent do added policies instigate institutional change? This article relies on qualitative document analyses, semistructured interviews, and quantitative survey data. We find high legitimacy for the framework plan in the ECEC sector, and informants broadly regard it as a continuation of earlier versions of the plan. Our analysis further shows that the implementation of the 2017 framework plan reform cannot be viewed in isolation, as it interacts with other reforms, trends, and instruments in the sector. We argue that blending reform design features with existing values and practices adds layers to Norwegian ECEC, instigating change. The analysis points to the need for further research on how national educational reforms are implemented in complex settings and to investigate the relationships between policy design and measures and between policy outcomes and ambitions. The relationships between different measures can be unclear to local implementers. Thus, we stress the importance of considering how reform outcomes depend on intertwined reforms and varying local conditions regarding capacity, norms, and values.
Central among a range of reforms and policy measures aimed at enhancing the quality and social cohesion of Norwegian early childhood education and care (ECEC) services is the 2017 Framework Plan for Kindergartens. In this article, we investigate the policy formation process and how framework plan reform has been carried out by public and private stakeholders at different levels. The reform is explored as institutional layering, referring to theoretical contributions that stress the role of incremental development and gradual institutional change. We ask: What are the policies added, and to what extent do added policies instigate institutional change? This article relies on qualitative document analyses, semistructured interviews, and quantitative survey data. We find high legitimacy for the framework plan in the ECEC sector, and informants broadly regard it as a continuation of earlier versions of the plan. Our analysis further shows that the implementation of the 2017 framework plan reform cannot be viewed in isolation, as it interacts with other reforms, trends, and instruments in the sector. We argue that blending reform design features with existing values and practices adds layers to Norwegian ECEC, instigating change. The analysis points to the need for further research on how national educational reforms are implemented in complex settings and to investigate the relationships between policy design and measures and between policy outcomes and ambitions. The relationships between different measures can be unclear to local implementers. Thus, we stress the importance of considering how reform outcomes depend on intertwined reforms and varying local conditions regarding capacity, norms, and values.
Purpose The aim of this study is to demonstrate the usefulness of the “publicness” and “privateness” concepts in examining childcare policy reforms. Understanding them as having multiple facets, this paper challenges the way in which childcare-going-public is often simply assessed based on the coverage of publicly-funded childcare services. Instead, it highlights that the process should be more thoroughly examined by considering who pays for whom to provide childcare, where it takes place, how it is regulated, and what kinds of normative ideals it works towards.Design/methodology/approach The research design is two-fold. Firstly, it coins the concepts of “publicness” and “privateness” based on existing literature on welfare pluralism and public administration. It then unpacks the key facets constituting this conceptual twin within the childcare context, which are utilised to craft four models of childcare production. Secondly, this framework is analytically applied to explore 21st-century South Korea to track the changes and continuities in its childcare production models across four governments.Findings The analysis shows that while South Korea's childcare publicness increased in terms of funding, its privateness was bolstered in regard to the location of childcare, the way that publicly-funded childcare services were regulated and delivered, and the manner in which childcare was partially consolidated as a familial responsibility.Originality/value This paper proposes a new conceptual framework to analyse the complex and multi-layered process of how childcare goes public, which is analytically applied to a cross-governmental comparative study of South Korea.
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