Fragmentation and Policy-to-Practice in Early Childhood Education in Wales

Three leading educators, two from the University of Wales Trinity Saint David (UWTSD), and one from the Open University, examine the state of Early Childhood Education in Wales in a newly published article for the Wales Journal of Education.

The article “Early Childhood Education in Wales: Policy, Promises and Practice Realities” by Dr Sarah Stewart, Natalie MacDonald, and Dr Jane Waters-Davies highlights two critical aspects: the fragmentation of educational experiences for young children and the gap between policy and practice from a children’s rights perspective.

Here UWTSD’s Childhood, Youth and Education Academic Director, Natalie MacDonald reflects on the issues discussed:

Early Childhood Education and Care (ECEC) in Wales is at a crossroads, grappling with the dual challenges of bringing together education and care policy and the gap between policy and practice of enactment of children’s rights. The Welsh Government’s commitment to the United Nations Convention on the Rights of the Child (UNCRC) is evident in its robust policy framework. However, the reality on the ground tells a different story, marked by inconsistencies and fragmentation that threaten the coherence and effectiveness of early years education.

The Promise of Policy

Wales has made significant strides in embedding children’s rights within its educational policies. The Curriculum for Wales (CfW), designed for children aged three to sixteen, is a testament to this commitment. It emphasises a rights-based approach, aiming to ensure that all children experience their rights and receive a promising start in life. The Foundation Phase (FP) Curriculum Framework, introduced post-devolution, was a pioneering step towards a holistic and child-centred approach to early education.

The FP framework was designed to cater to children aged three to seven, promoting a responsive pedagogic approach. This framework has evolved into the Enabling Learning (EL) guidance within the CfW, which continues to emphasise the importance of children’s rights and participatory pedagogies. The Welsh Government’s proactive stance on children’s rights is further reflected in policies like “Rights to Action,” which translates the UNCRC’s articles into broad policy aims, including a comprehensive range of education and learning opportunities and a flying start in life.

The Reality of Fragmentation

Despite these robust policies, the educational experiences of three- to four-year-old children in Wales are increasingly fragmented. This fragmentation arises from the divide between maintained and non-maintained educational provision. Maintained provision, typically within schools, is governed by one set of policies and regulations, while non-maintained provision, such as day nurseries and childminders, is governed by another. This dual system creates inconsistencies in the educational experiences of young children.

The Curriculum for Funded Non-Maintained Nursery Settings (CfFNNS) and the Early Childhood Play, Learning and Care in Wales guidance are attempts to bridge this divide. However, the non-statutory nature of the CfFNNS more broadly means that its implementation is not uniform across all settings. This leads to a varied educational offer for three- to four-year-olds, depending on whether they are in maintained or non-maintained settings. Furthermore, challenges with the interpretation of these policies (as explored by and MacDonald (forthcoming)), could intensify this problem.

The inconsistency is further exacerbated by the different inspection regimes for maintained and non-maintained provisions. Estyn, the education inspectorate for Wales, inspects maintained settings, while the Care Inspectorate Wales (CIW) inspects non-maintained settings. This dual inspection system can lead to disparities in the quality and consistency of educational provision despite the steps taken to work together through the joint inspection framework.

The Policy-to-Practice Gap

The gap between policy and practice is another significant challenge. While the CfW and other policies emphasise a rights-based, participatory approach to education, the reality in classrooms often falls short. Empirical studies, including those by Stewart (2024) highlight that teachers’ understanding and implementation of children’s rights are inconsistent. Many teachers are confident in teaching “about” rights but less so in teaching “through” or “for” rights, which require a more participative pedagogic approach.

This gap is partly due to a lack of clarity in policy guidance and the varying interpretations among educators. Teachers’ practices are often influenced by their own values and beliefs about children’s agency and competence. As a result, the enactment of children’s rights in early education is not always consistent or meaningful.

Implications and the Way Forward

The fragmentation and policy-to-practice gap in Early Childhood Education and Care in Wales have significant implications for young children, particularly those facing additional structural and personal challenges. The inconsistency in educational provision can lead to unequal learning opportunities and outcomes. Moreover, the gap between policy and practice could undermine the Welsh Government’s commitment to ensuring that all children experience their rights and receive a promising start in life.

To address these challenges, a more integrated and coherent approach to early childhood education is needed. This includes aligning the policies and practices of maintained and non-maintained provisions, ensuring consistent implementation of the CfW across all settings, and providing targeted professional development for educators. Such measures can help bridge the gap between policy and practice and reduce fragmentation, ensuring that all children in Wales receive a high-quality, rights-based early education.

In conclusion, while Wales has made commendable progress in ECEC within its  policies, the reality on the ground reveals significant challenges. Addressing the fragmentation and policy-to-practice gap is crucial to realising the promise of the Curriculum for Wales and ensuring that all children receive a consistent and high-quality early education.