英格兰高质量普惠性早期保育教育的发展及其对我国的启示
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摘要
英格兰政府自1997年以来协调使用直接供给、财政投入和规制管理三大政策杠杆,先后针对早期保育教育的可获得性、质量、可承受性进行了大幅改革。首先是引入市场模式,鼓励小规模供给,保障服务的可获得性,与此同时建立质量标准体系,完善注册与督导制度,加强师资结构与薪资待遇,普遍提高保育教育质量水平,然后努力扩大供给侧投入,改革投入方式,提高拨款透明性与公平性,并简化需求侧投入方式,提高补贴力度。我国政府应充分认识市场力量的作用与局限性,切实保障低收入家庭儿童能入园、入好园,并积极运用政策手段激励私立机构提升保教质量,实现学前教育公平与健康发展。
Providing high quality universal early years education and care has been a long-term policy issue in England since 1997. Availability,affordability and high quality are three policy goals involved in the issue with inner contradictions. The UK government has been utilizing the tool of direct provision,finance investment and regulation to introduce systematic revolution for the achievement of the three policy goals. Firstly,a market model was introduced and the small-scale provision was encouraged to improve availability. Secondly,quality has been widely improved through the development of a quality standard system,the revision of existing registration and inspection system,as well as the reconstruction of workforce qualification structure. Thirdly,supply-side funding was largely extended,with a rigorous funding formula in place to improve funding equity and accountability. The demand-side funding system was simplified to further benefit low income family. However,low income family are still facing availability and affordability issues out of free hours whilst full-time working parents are in a disadvantaged position of paying significant tuition fee for relatively lower quality childcare in private sector. The English experience implicates the effectiveness and limitations of childcare market. It is necessary for the government to not just ensure the accessibility of high quality childcare for disadvantaged children,but also positively use policy incentives to encourage private providers continuously to improve their education and care quality.
Providing high quality universal early years education and care has been a long-term policy issue in England since 1997. Availability,affordability and high quality are three policy goals involved in the issue with inner contradictions. The UK government has been utilizing the tool of direct provision,finance investment and regulation to introduce systematic revolution for the achievement of the three policy goals. Firstly,a market model was introduced and the small-scale provision was encouraged to improve availability. Secondly,quality has been widely improved through the development of a quality standard system,the revision of existing registration and inspection system,as well as the reconstruction of workforce qualification structure. Thirdly,supply-side funding was largely extended,with a rigorous funding formula in place to improve funding equity and accountability. The demand-side funding system was simplified to further benefit low income family. However,low income family are still facing availability and affordability issues out of free hours whilst full-time working parents are in a disadvantaged position of paying significant tuition fee for relatively lower quality childcare in private sector. The English experience implicates the effectiveness and limitations of childcare market. It is necessary for the government to not just ensure the accessibility of high quality childcare for disadvantaged children,but also positively use policy incentives to encourage private providers continuously to improve their education and care quality.
引文
[1]RUTTER J,STOCKER K.Childcare costs survey 2014[R].Family and Childcare Trust.2015:15.
[2]WILLER B.Quality or affordability:trade-offs for early childhood programs[J].Young children,1987,42(6),41-43.
[3]杨顺光,李玲,张兵娟,等.“全面二孩”政策与学前教育资源配置:基于未来20年适龄人口的预测[J].学前教育研究,2016(08):3-13.
[4]潘旺明,李鸿,李晓丽,等.区域学前教育均衡发展关键:政府主导大力发展普惠园[J].学前教育研究,2017(02):27-30.
[5]洪秀敏,姜丽云.“全面二孩”政策下学前教育发展的问题:基于二期学前教育三年行动计划的调查与分析[J].北京师范大学学报(社会科学版),2018(05):53-61.
[6][11][13][33]STEWART K,GAMBARO L.World class:what does international evidence tell us about improving quality,access and affordability in the english childcare market?[EB/OL].(2014-08-23)[2018-05-21].http://dera.ioe.ac.uk/28295/.
[7]Department for Health and Social Security.Low cost day provision for under fives[C]//Papers of a conference held at the Civil Service College,Sunningdale Park,9-10 January 1976.
[8]吉登斯.第三条道路:社会民主主义的复兴[M].郑戈,译.北京大学出版社,生活·读书·新知三联书店,2000:23.
[9]BALDOCK P,FITZGERALD D,KAY J.Understanding early years policy[M].Sage.2013:2.
[10]PENN H.Childcare market management:how the United Kingdom government has reshaped its role in developing early childhood education and care[J].Contemporary Issues in Early Childhood,2007,8(03):192-207.
[12]Camden Council.Setting up a nursery business in Camden[EB/OL].(2018-02-03)[2018-05-20].https://www.camden.gov.uk/ccm/cms-service/stream/asset/?asset_id=3556 266&.
[14]GAUNT C.Nursery chains:league tables-the big picture[J].Nursery World,(2017-11-11)[2017-12-06].https://www.nurseryworld.co.uk/nursery-world/feature/116274 8/nurserychain s-league-ta bles-thebig-picture.
[15][19]MAYALL B,PETERIE P.Childminding and day nurseries:what kind of care[J].Institute of Education University of London.1983(13):16.
[16]School Curriculum and Assessment Authority.Nursery education:desirable outcomes for children’s learning on entering compulsory education[M].London:SCAA.1996:2.
[17]GYIMAH S.Speech at national day nurseries association conference[C]//Paper presented at the National Day Nurseries Association Conference,London.2014-01-14.
[18]LLOYD E,PENN H.Childcare markets in an age of austerity[J].European Early Childhood Education Research Journal,2014,22(3):386-396.
[20]OFSED.Early years:the first national picture[R].HMI 1583.Manchester:Ofsted Publications Centre.2003.
[21]SEAN COUGHLAN.Ofsted to bring school and college inspections in-house[EB/OL].(2014-02-03)[2018-01-07].https://www.bbc.c o.uk/news/education-27620097.
[22]GRENIER J.Successful early years ofsted inspections:thriving children,confident staff[M].Sage.2016:3.
[23]MATHERS S,RANNS H,KAREMAKER A,et al.Evaluation of the graduate leader fund:report to the UK department of education[EB/OL].(2011-02-03).[2017-10-12].https://www.gov.uk/government/publications/evaluation-ofthegraduate-leaderfund-final-report.
[24]Qualifications and Curriculum Authority.Curriculum guidance for the foundation stage.London:department for education and employment.foreword[EB/OL].(2000-03-04)[2018-07-20]http://webarchive.nationalarchives.gov.uk/20040117041426/http://www.dfes.gov.uk/found ationstage/download.shtml.
[25]LINSEY A,MCAULIFFE A M.Children at the centre?the childcare act 2006[J].Children&society,2006,20(5):404-408.
[26]BROOKER L,ROGERS S,ELLS D,et al.Practitioners’experiences of the early years foundation stage[EB/OL].(2010-08-26)[2018-03-01].https://www.gov.uk/government/pu blications/practitioners-experiences-of-the-early-years-foundation-stage.
[27]SYLVA K,MELHUISH E,SAMMONS P,et al.The effective provision of pre-school education(EPPE)project[EB/OL].(2004-10-23)[2018-03-06].http://dera.io e.ac.uk/8543/7/SSU-SF-2004-01.pdf.
[28]CWDC,Early years professional national standards[EB/OL].(2006-08-01)[2018-03-15].https://www.l ancsngfl.ac.uk/curriculum/early_years/download/file/Draft_EYP_Standards_Aug_2006.pdf.
[29]NUTBROWN C.Foundations for quality:the independent review of early education and childcare qualifications final report[EB/OL].(2012-06-23)[2018-03-20]https://assets.publishing.service.gov.uk/gov ernment/uploads/system/uploads/attachment_data/file/175463/Nutbrown-Review.pdf.
[30]NUTBROWN C.Shaking the foundations of quality?why‘childcare’policy must not lead to poor-quality early education and care[EB/OL].Sheffield:University of Sheffield.(2013-03-01)[2017-12-10]https://www.sheffield.ac.uk/polopoly_fs/1.263201!/file/Shakingthefoundations ofquality.pdf.
[31]EISENSTADT N,SYLVA K,MATHERS S,et al.More great childcare:research evidence[EB/OL].(2013-01-01)[2018-05-01].http://www.ecersu k.org/resources/More+Great+Childcare+Research+Evidence+March+2013.pdf
[32]WILD M,SILBERFELD C,NIGHTINGALE B.More?great?childcare?a discourse analysis of two recent social policy documents relating to the care and education of young children in England[J].International Journal of Early Years Education,2015,23(3):230-244.
[34]PUGH G.Evaluations of nursery vouchers:lessons from Phase One[C]//National Children’s Bureau Conference,1996,10(1):29.
[35]SPARKES J,WEST A.An evaluation of the English nursery voucher scheme 1996-1997[J].E-ducation Economics,1998,6(2):171-184.
[36]Pre-School Learning Alliance.Making vouchers work:a briefing by the pre-school learning alliance on the operation of nursery education vouchers in phase one areas[R].1996.
[37]WEST A,NODE P.Public funding of early years education in England:an historical perspective[EB/OL].(2016-09-01)[2018-06-04].http://eprints.lse.ac.uk/67879/7/West_Public%20finding%20supplemen t_2016.pdf.
[38]DFE.Review of childcare costs:the analytical report,an economic assessment of the early education and childcare market and providers’costs.[EB/OL].(2015-01-01)[2018-06-11].https://w ww.gov.uk/gove rnment/publications/review-of-childcare-costs.
[39]WARD,HELEN.Nurseries still facing‘devastating’cuts despite delay to funding change:news[EB/OL].(2010-09-12)[2018-09-01].The Times Educational Supplement;London Iss.4877:4.https://search-proquest-com.libproxy.ucl.ac.uk/docview/763432780?rfr_id=info%3Axri%2Fsid%3Aprimo.
[40]British Association for Early Childhood Education.Maintained nursery schools:hubs for quality in the early years[EB/OL].(2014-01-01).[2017-10-02].https://www.earlyeducation.org.uk/sites/default/files/NS%20Surveys%20report_lo-res.pdf.
[41]GYIMAH S.Speech at national day nurseries association conference[C]//Paper presented at the National Day Nurseries Association Conference,London.14 January 2015.
[42]BRENNAN D,CASS B,HIMMELWEIT S,et al.The marketisation of care:rationales and consequences in Nordic and liberal care regimes[J].Journal of European Social Policy,2012,22(4):377-391.
[43]NODEN P,WEST A.The early years single funding formula:national policy and local implementation[EB/OL].(2016-01-23)[2018-1-10].http://eprints.lse.ac.uk/67880/7/West_Early%20years%20supplement_2016_author.pdf.
[44]Family and Childcare Trust.Where next for childcare?[EB/OL].London:Family and Childcare Trust.(2014-01-13)[2017-12-11].https://www.familyandchildcaretrust.org/file/1935/download?t oken=AB3 zPLP H.
[45]ALAKESON V,HURRELL A.Counting the costs of childcare[EB/OL].(2012-04-12)[2018-06-15].https://www.resolutionfoundation.org/app/uploads/2014/08/Counting_the_costs_of_childcare_2.pdf.
[46]BREWER M,CATTAN S,CRAWFORD C.State support for early childhood education and care in England[EB/OL].(2014-01-22)[2018-01-03].http://194.66.89.8/budgets/gb201 4/gb2014_ch 8.pdf.
(1)培训和企业委员会(Training and Enterprise Councils,TECs)于20世纪90年代在英格兰和威尔士各地建立,其目的是管理各个受公共资金资助的项目。
(2)学校课程与评估委员会(SCAA)是1997年成立的“课程与资格考试委员会”(Qualifications and Curriculum Authority)的一个分支,负责管理学历资格,另一个分支是“职业资格委员会”(National Council for Vocational Qualifications)。
(3)英国《国家资格框架》共有9级,由入门级和1~8级构成,其中,2级相当于普通中等教育证书水平,3级相当于普通中等教育高级证书水平,4级相当于高等教育证书水平,而8级相当于博士学位水平。
(4)满足以下任何一种资格标准即可:家庭年收入税后低于15400英镑、家庭年收入税前低于16190英镑、接受某几种特定的福利补贴、受到地方政府照料的儿童、特殊儿童、接受残障生活津贴的儿童、受到特殊监护的儿童。
(5)资格标准包括:父亲或母亲的收入高于每周16小时最低工资的总额,并低于每年100000英镑。
(6)1英镑约等于8.4478人民币(2017年1月汇率)。
(7)在原来以学位计算拨款的方式下,学校每年所获拨款是稳定的,与学位实际使用情况无关。但改革后按照免费学位实际使用时数的计算方式使得拨款完全依赖于学位实际使用情况,拨款总额不仅不能提前预知,而且往往低于原有方式。
[2]WILLER B.Quality or affordability:trade-offs for early childhood programs[J].Young children,1987,42(6),41-43.
[3]杨顺光,李玲,张兵娟,等.“全面二孩”政策与学前教育资源配置:基于未来20年适龄人口的预测[J].学前教育研究,2016(08):3-13.
[4]潘旺明,李鸿,李晓丽,等.区域学前教育均衡发展关键:政府主导大力发展普惠园[J].学前教育研究,2017(02):27-30.
[5]洪秀敏,姜丽云.“全面二孩”政策下学前教育发展的问题:基于二期学前教育三年行动计划的调查与分析[J].北京师范大学学报(社会科学版),2018(05):53-61.
[6][11][13][33]STEWART K,GAMBARO L.World class:what does international evidence tell us about improving quality,access and affordability in the english childcare market?[EB/OL].(2014-08-23)[2018-05-21].http://dera.ioe.ac.uk/28295/.
[7]Department for Health and Social Security.Low cost day provision for under fives[C]//Papers of a conference held at the Civil Service College,Sunningdale Park,9-10 January 1976.
[8]吉登斯.第三条道路:社会民主主义的复兴[M].郑戈,译.北京大学出版社,生活·读书·新知三联书店,2000:23.
[9]BALDOCK P,FITZGERALD D,KAY J.Understanding early years policy[M].Sage.2013:2.
[10]PENN H.Childcare market management:how the United Kingdom government has reshaped its role in developing early childhood education and care[J].Contemporary Issues in Early Childhood,2007,8(03):192-207.
[12]Camden Council.Setting up a nursery business in Camden[EB/OL].(2018-02-03)[2018-05-20].https://www.camden.gov.uk/ccm/cms-service/stream/asset/?asset_id=3556 266&.
[14]GAUNT C.Nursery chains:league tables-the big picture[J].Nursery World,(2017-11-11)[2017-12-06].https://www.nurseryworld.co.uk/nursery-world/feature/116274 8/nurserychain s-league-ta bles-thebig-picture.
[15][19]MAYALL B,PETERIE P.Childminding and day nurseries:what kind of care[J].Institute of Education University of London.1983(13):16.
[16]School Curriculum and Assessment Authority.Nursery education:desirable outcomes for children’s learning on entering compulsory education[M].London:SCAA.1996:2.
[17]GYIMAH S.Speech at national day nurseries association conference[C]//Paper presented at the National Day Nurseries Association Conference,London.2014-01-14.
[18]LLOYD E,PENN H.Childcare markets in an age of austerity[J].European Early Childhood Education Research Journal,2014,22(3):386-396.
[20]OFSED.Early years:the first national picture[R].HMI 1583.Manchester:Ofsted Publications Centre.2003.
[21]SEAN COUGHLAN.Ofsted to bring school and college inspections in-house[EB/OL].(2014-02-03)[2018-01-07].https://www.bbc.c o.uk/news/education-27620097.
[22]GRENIER J.Successful early years ofsted inspections:thriving children,confident staff[M].Sage.2016:3.
[23]MATHERS S,RANNS H,KAREMAKER A,et al.Evaluation of the graduate leader fund:report to the UK department of education[EB/OL].(2011-02-03).[2017-10-12].https://www.gov.uk/government/publications/evaluation-ofthegraduate-leaderfund-final-report.
[24]Qualifications and Curriculum Authority.Curriculum guidance for the foundation stage.London:department for education and employment.foreword[EB/OL].(2000-03-04)[2018-07-20]http://webarchive.nationalarchives.gov.uk/20040117041426/http://www.dfes.gov.uk/found ationstage/download.shtml.
[25]LINSEY A,MCAULIFFE A M.Children at the centre?the childcare act 2006[J].Children&society,2006,20(5):404-408.
[26]BROOKER L,ROGERS S,ELLS D,et al.Practitioners’experiences of the early years foundation stage[EB/OL].(2010-08-26)[2018-03-01].https://www.gov.uk/government/pu blications/practitioners-experiences-of-the-early-years-foundation-stage.
[27]SYLVA K,MELHUISH E,SAMMONS P,et al.The effective provision of pre-school education(EPPE)project[EB/OL].(2004-10-23)[2018-03-06].http://dera.io e.ac.uk/8543/7/SSU-SF-2004-01.pdf.
[28]CWDC,Early years professional national standards[EB/OL].(2006-08-01)[2018-03-15].https://www.l ancsngfl.ac.uk/curriculum/early_years/download/file/Draft_EYP_Standards_Aug_2006.pdf.
[29]NUTBROWN C.Foundations for quality:the independent review of early education and childcare qualifications final report[EB/OL].(2012-06-23)[2018-03-20]https://assets.publishing.service.gov.uk/gov ernment/uploads/system/uploads/attachment_data/file/175463/Nutbrown-Review.pdf.
[30]NUTBROWN C.Shaking the foundations of quality?why‘childcare’policy must not lead to poor-quality early education and care[EB/OL].Sheffield:University of Sheffield.(2013-03-01)[2017-12-10]https://www.sheffield.ac.uk/polopoly_fs/1.263201!/file/Shakingthefoundations ofquality.pdf.
[31]EISENSTADT N,SYLVA K,MATHERS S,et al.More great childcare:research evidence[EB/OL].(2013-01-01)[2018-05-01].http://www.ecersu k.org/resources/More+Great+Childcare+Research+Evidence+March+2013.pdf
[32]WILD M,SILBERFELD C,NIGHTINGALE B.More?great?childcare?a discourse analysis of two recent social policy documents relating to the care and education of young children in England[J].International Journal of Early Years Education,2015,23(3):230-244.
[34]PUGH G.Evaluations of nursery vouchers:lessons from Phase One[C]//National Children’s Bureau Conference,1996,10(1):29.
[35]SPARKES J,WEST A.An evaluation of the English nursery voucher scheme 1996-1997[J].E-ducation Economics,1998,6(2):171-184.
[36]Pre-School Learning Alliance.Making vouchers work:a briefing by the pre-school learning alliance on the operation of nursery education vouchers in phase one areas[R].1996.
[37]WEST A,NODE P.Public funding of early years education in England:an historical perspective[EB/OL].(2016-09-01)[2018-06-04].http://eprints.lse.ac.uk/67879/7/West_Public%20finding%20supplemen t_2016.pdf.
[38]DFE.Review of childcare costs:the analytical report,an economic assessment of the early education and childcare market and providers’costs.[EB/OL].(2015-01-01)[2018-06-11].https://w ww.gov.uk/gove rnment/publications/review-of-childcare-costs.
[39]WARD,HELEN.Nurseries still facing‘devastating’cuts despite delay to funding change:news[EB/OL].(2010-09-12)[2018-09-01].The Times Educational Supplement;London Iss.4877:4.https://search-proquest-com.libproxy.ucl.ac.uk/docview/763432780?rfr_id=info%3Axri%2Fsid%3Aprimo.
[40]British Association for Early Childhood Education.Maintained nursery schools:hubs for quality in the early years[EB/OL].(2014-01-01).[2017-10-02].https://www.earlyeducation.org.uk/sites/default/files/NS%20Surveys%20report_lo-res.pdf.
[41]GYIMAH S.Speech at national day nurseries association conference[C]//Paper presented at the National Day Nurseries Association Conference,London.14 January 2015.
[42]BRENNAN D,CASS B,HIMMELWEIT S,et al.The marketisation of care:rationales and consequences in Nordic and liberal care regimes[J].Journal of European Social Policy,2012,22(4):377-391.
[43]NODEN P,WEST A.The early years single funding formula:national policy and local implementation[EB/OL].(2016-01-23)[2018-1-10].http://eprints.lse.ac.uk/67880/7/West_Early%20years%20supplement_2016_author.pdf.
[44]Family and Childcare Trust.Where next for childcare?[EB/OL].London:Family and Childcare Trust.(2014-01-13)[2017-12-11].https://www.familyandchildcaretrust.org/file/1935/download?t oken=AB3 zPLP H.
[45]ALAKESON V,HURRELL A.Counting the costs of childcare[EB/OL].(2012-04-12)[2018-06-15].https://www.resolutionfoundation.org/app/uploads/2014/08/Counting_the_costs_of_childcare_2.pdf.
[46]BREWER M,CATTAN S,CRAWFORD C.State support for early childhood education and care in England[EB/OL].(2014-01-22)[2018-01-03].http://194.66.89.8/budgets/gb201 4/gb2014_ch 8.pdf.
(1)培训和企业委员会(Training and Enterprise Councils,TECs)于20世纪90年代在英格兰和威尔士各地建立,其目的是管理各个受公共资金资助的项目。
(2)学校课程与评估委员会(SCAA)是1997年成立的“课程与资格考试委员会”(Qualifications and Curriculum Authority)的一个分支,负责管理学历资格,另一个分支是“职业资格委员会”(National Council for Vocational Qualifications)。
(3)英国《国家资格框架》共有9级,由入门级和1~8级构成,其中,2级相当于普通中等教育证书水平,3级相当于普通中等教育高级证书水平,4级相当于高等教育证书水平,而8级相当于博士学位水平。
(4)满足以下任何一种资格标准即可:家庭年收入税后低于15400英镑、家庭年收入税前低于16190英镑、接受某几种特定的福利补贴、受到地方政府照料的儿童、特殊儿童、接受残障生活津贴的儿童、受到特殊监护的儿童。
(5)资格标准包括:父亲或母亲的收入高于每周16小时最低工资的总额,并低于每年100000英镑。
(6)1英镑约等于8.4478人民币(2017年1月汇率)。
(7)在原来以学位计算拨款的方式下,学校每年所获拨款是稳定的,与学位实际使用情况无关。但改革后按照免费学位实际使用时数的计算方式使得拨款完全依赖于学位实际使用情况,拨款总额不仅不能提前预知,而且往往低于原有方式。