Table Of ContentDOCUMENT RESUME
PS 026 337
ED 417 027
Kagan, Sharon L.; Cohen, Nancy E.
AUTHOR
Not by Chance: Creating an Early Care and Education System
TITLE
for America's Children. Abridged Report. The Quality 2000
Initiative.
Yale Univ., New Haven, CT. Bush Center in Child Development
INSTITUTION
and Social Policy.
1997-00-00
PUB DATE
83p.
NOTE
Bush Center in Child Development and Social Policy at Yale
AVAILABLE FROM
University, 310 Prospect Street, New Haven, CT 06511.
-- Reports - Descriptive
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*Change Agents; *Change Strategies; Child Caregivers; *Day
DESCRIPTORS
Infant
Care; *Day Care Effects; Early Childhood Education;
Care; Infants; Parent Participation; Public Policy; Young
Children
Caregiver Qualifications; Caregiver Training; Day Care
IDENTIFIERS
Licensing; *Day Care Quality; Day Care Registration; Day
Care Regulations; Quality 2000 Initiative
ABSTRACT
the
This report of the Quality 2000 Initiative documents
discussing
quality crisis in early care and education in the United States,
improvement. Part 1 of
the reasons for this crisis and suggesting a plan for
in the Cost,
the report: describes the mediocre quality of care cited
since 1980, and
Quality, and Child Outcomes Study, the erosion of quality
the roots of the
problems in staff training and educational levels; details
will to
quality crisis; and maintains that the knowledge and political
in place. Part 2
develop an effective early care and education system are
(1) use a wide
discusses eight recommendations for developing this system:
(2) focus on goals and results for
range of approaches to achieve quality;
and
(3) place parents and families at the core of early care
children;
(5) expand the content
(4) require staff to be licensed;
education programs;
(6) eliminate exemptions and streamline and
of training and education;
(7) raise new funds and set aside ten percent for
enforce facility licensing;
early care and
quality and infrastructure; and (8) create local and state
examines a
education boards. Part 3 of the report, "Realizing the Vision,"
be built upon. This part
range of existing initiatives or programs that can
comprehensive
also identifies three key strategies--conceptual exploration,
call to
demonstration, and broad-based mobilization--and concludes with a
The report's
action, suggesting who should do what to carry out the vision.
four appendices list task force and related meeting participants,
contains
consultant-partners, and commissioned working papers. Each part
references. (Author/KB)
********************************************************************************
made
*
Reproductions supplied by EDRS are the best that can be
*
*
from the original document.
*
********************************************************************************
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NOT BY CHANCE
Creating an Early Care and Education
System for America's Children
Sharon L. Kagan
Nancy E. Cohen
Abridged Report
The Quality 2000 Initiative
1997
For more information, contact
The Bush Center in Child Development and Social Policy
at Yale University
310 Prospect Street, New Haven, CT 06511
CONTENTS
FOREWORD
ix
PREFACE
Part One
THE QUALITY CRISIS: REALITIES, ROOTS,
SIGNIFICANCE, TIMING
1
2
THE REALITIES
3
ROOTS OF THE QUALITY CRISIS
4
SIGNIFICANCE
7
TIMING
Part Two
9
THE RECOMMENDATIONS
10
THE PROGRAMS: RECOMMENDATIONS I AND II
RECOMMENDATION I: Use a Wide Range of Approaches to
Achieve Quality in Family Child Care and Center-Based Programs
11
for Young Children and Their Families
15
RECOMMENDATION II: Focus on Goals and Results for Children
20
THE PARENTS: RECOMMENDATION III
RECOMMENDATION HI: Place Parents and Families at the Core
21
of Early Care and Education Programs
24
THE PRACTITIONERS AND PLACES: RECOMMENDATIONS IV, V, AND VI
25
RECOMMENDATION IV: Require Staff to Be Licensed
28
RECOMMENDATION V: Expand the Content of Training and Education
RECOMMENDATION VI: Eliminate Exemptions and Streamline and
30
Enforce Facility Licensing
THE PURSE, THE PUBLIC, AND THE POWER: RECOMMENDATIONS VII AND VIII 34
RECOMMENDATION VII: Raise New Funds and Set Aside Ten Percent
35
for Quality and Infrastructure
RECOMMENDATION VIII: Create Local and State Early Care and
38
Education Boards
Part Three
43
REALIZING THE VISION
44
EXEMPLARY TRADITIONS AND PROMISING EFFORTS
45
REFORM STRATEGIES
48
THE PLAYERS
53
APPENDICES. NOTES. AND REFERENCES
54
APPENDIX A: CONSULTANT-PARTNERS
55
APPENDIX B: TASK FORCE PARTICIPANTS
57
APPENDIX C: PARTICIPANTS IN RELATED MEETINGS
61
APPENDIX D: COMMISSIONED WORKING PAPERS
63
NOTES
65
REFERENCES
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Tanika sits at a long table with her classmates in the four-year-old room of the Early Learn-
ing Preschool. Next week is Thanksgiving, and the children are making turkeys out of
and
brown and orange paper. Mrs. Poole shows them how to trace the shapes, cut them out,
the teacher's.
paste them together. Most succeed in making their turkeys look something like
Nicole sits cross-legged on the rug, a sneaker in her lap, in Mrs. Ryan's living room, where
hold
she spends most of her days. She still can't tie her shoes. Mrs. Ryan shows her how to
keep
the laces and tells her to keep at it, but no matter how hard Nicole tries, the loops
unlooping. Mrs. Ryan tells her to make three more tries. Nicole is frustrated, and confused
about when one "try" is finished and the next one begins.
propped
Any day now, five-month-old Andrew will be sitting up by himself For now, he is
Care Center. Jessica,
up against cushions on the carpeted floor of the Shining Star Child
who is responsible for the infant group, wants to be sure that Andrew doesn't topple over
change.
while she attends to two eight-month-olds and a toddler badly in need of a diaper
Jes-
Andrew shakes a rattle. He looks up expectantly, then shakes it harder He begins to cry.
sica tells herself that waiting tables would pay better and might be a lot less stressful.
But everything is NOT all right. Today, an
and
Nicole,
Tanika,
settings,
these
n
overwhelming majority of young children in child
Andrewand millions of young children like
been
care spend their days in settings that have
themspend up to 50 hours a week. In
found to be of poor to mediocre quality1 settings
rooms like these across the nationin child care
that compromise children's long-term develop-
centers, preschool programs, family child care
ment. Preschoolers fare poorly, but infants and tod-
homes, and nursery schoolsAmerican young-
dlers face dire situations, with two out of five spend-
sters play and pretend, hear stories and have
ing their days in settings that threaten their
snacks, and fill the long hours between drop-off
immediate health and safety.`' It's not just the chil-
and pick-up. The children are used to these
dren who endure difficulties. Families cannot
places; they have adult supervision; andin most
locate quality services; program providers, though
casestheir parents have selected the programs.
often having the knowledge, lack the resources to
To most casual observers, everything seems to be
make needed changes; and policy makers are often
all right.
confused about what to do to improve services.
44,4
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Other foundations joined the effort to sup-
Indeed, a growing number of Americans are con-
the
port special issues. We gratefully acknowledge
cluding that America's services to its children and
involvement of Valora Washington and the support
perhaps, as
families constitute a national crisis .
. .
of the W. K. Kellogg Foundation for the results
has been suggested, one of the greatest domestic
and outcomes portion of this work. Her courage
problems our nation has faced since the founding
in venturing forward on the child results journey
of the Republic.3
is admirable. Deanna Gomby and the David and
Not By Chance: Creating an Early Care and Edu-
Lucile Packard Foundation gave support to
cation System for America's Children, based on the
advance thinking in the finance component of
work of the Quality 2000 Initiative, is about these
Quality 2000. We thank her and the Foundation
children,a these parents and families,b and these
for their help at a critical juncture on a key com-
services. It documents the quality crisis in early
ponent of the Quality 2000 effort. Luba Lynch and
care and education,c showing that in this nation
the A. L. Mailman Family Foundation graciously
in contrast to most other industrialized nations
helped to support the dissemination efforts. Stacie
good early care and education programs are
Goffin and The Ewing Marion Kauffman Founda-
beyond the reach of most families. Not By Chance
tion were involved in an allied project on systems
discusses why such a pervasive crisis exists and
integration; many of the lessons from this effort
suggests a plan for improvement. It offers a com-
found their way into our thinking and our work.
prehensive response to the child care and early
Quality 2000 thanks them as well.
education dilemma by providing a visionary, long-
We gratefully acknowledge the assistance of
Its eight
range, and research-based strategy.
a group of colleagues who contributed their time
actionable recommendations are predicated on,
and knowledge to this project. These collabora-
and dedicated to, the proposition that we can and
tors provided visionary leadership, keen insights,
must do better by American childrenthat we
and provocative ideas to the initiativeand also
simply can no longer take chances on theirand
made it much more fun for us, the authors, to
ourfuture. Not By Chance suggests that we must
work on. Martin Gerry (of the University of
create an early care and education system
Kansas) and Cheryl Hayes (of The Finance Project)
because children matterand because what we
helped us with the funding and financing issues.
do for them matters immensely.
William Gormley (of the Georgetown Graduate
Not By Chance came into being with the sup-
Public Policy Program) consulted in the areas of
port of many people. Foremost among them was
government and business roles. Nancy Kolben and
Michael Levine of the Carnegie Corporation of
Patty Siegel (of the National Association of Child
New York, whose vision for the early care and edu-
Care Resource and Referral Agencies) led the
cation field is inspired, and whose concern for
work on the essential functions of the infrastruc-
young children and quality programs is unfalter-
ture and on change strategies. Anne Mitchell (of
ing. He recognized the imperiled state of early
Early Childhood Policy Research) was the lead
care and education, and created in Quality 2000
consultant in the area of professional develop-
an intellectual forum for a thorough re-examina-
ment. Deborah Phillips (of the National Research
tion of the challenges and opportunities before
Council's Board on Children and Families)
the field. He, David Hamburg, and Vivien Stewart
helped launch the project as a Co-Principal Inves-
understood, supported, and guided this effort. To
tigator; later, she focused her efforts on the recon-
them, and to the Carnegie Corporation of New
sidering quality component. Sharon Rosenkoetter
York, we give thanks.
fes
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NOT BY CHANCE
Our families lent ongoing confidence,
(of Associated Colleges of Central Kansas) worked
encouragement, and support. In particular, we
on child and family results issues. And Carol
thank Stephen Page for his intellectual engagement
Stevenson (formerly of the Child Care Law Center
of these issues and his ongoing support.
and currently of the David and Lucile Packard
Perhaps the greatest credit, however, is due
Foundation) helped formulate the investigation
to our dear colleagues in the field, the good
of facility licensing. We also owe great thanks to
friends who willingly sat on task forces, wrote
Rima Shore for editing this report.
papers, reviewed recommendations, and wrestled
Colleagues at the Yale University Bush Cen-
with tough issues again and again. They are listed
ter in Child Development and Social Policy lent
in the appendices. Their provocative questions
guidance and support throughout the effort.
constantly fed fuel to our thinking; their critical
Edward Zig ler contributed thoughtful insights to
comments made the product better; their dedica-
this work. Eliza Pritchard helped with the day-to-
tion to the young children, families, and profes-
day work of the project, wrote several working
sionals inspired and sustained our work. They are
papers, and assisted with early drafts of this
the spirit of Quality 2000 and Not By Chance; it is
report; we thank her greatly for guiding our
only fitting that this report be dedicated to them.
thinking and remaining a smiling and steady pres-
ence throughout. Michelle Neuman contributed
Sharon L. Kagan
her expertise, patience, and fortitude throughout
Nancy E. Cohen
the final stages of this report. Muriel Hamilton-Lee
August 1997
and Jean Rustici contributed insight and consistent
support through the entire process. Jane Murray
supported the work of allwillingly, graciously,
and effectively.
BEST
COPY
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FOREWORD
psychologists, political scientists, policy analysts,
hances are that unless a toddler is throw-
economists, finance experts, community organiz-
ing a tantrum at the supermarket or the
ers, and media specialists. Working collaborative-
woman next door takes care of children in
ly, scores of individuals have contributed to the
her home, most Americans have little day-to-day
evolution of thinking embraced in the Not By
awareness of other people's small children.
Chance reportthinking that is designed to
Chances are that most Americans, preoccupied
reframe how we consider and deliver early care
with the demands of daily living, don't think
and education services to America's young chil-
about the early care and education system. Young
dren.
children don't vote; they don't commit crimes;
Stated most simply, the Not By Chance mis-
they don't join teams or win trophies. They rarely
sion is that by the year 2010, high-quality early
make headlines, and when they do, the circum-
stances are apt to be so dramatica baby
care and education programs will be available and
accessible to all children from birth to age five
snatched, a toddler trapped in a wellthat their
whose parents choose to enroll themand that
experiences are seen as exceptional rather than
these services will be supported by a well-funded,
typical. In short, America's young children have
coherent, and coordinated infrastructure. This
received remarkably little attention from the pub-
mission proceeds from the conviction that quality
lic at large.
early care and education programs will not come
Why? Why is it that we, as Americans, pro-
into being by chance and will not proliferate with-
claim dedication to the well-being of children, yet
out a viable, sustained, and integrated early care
seem to be in a state of collective denial about the
and education infrastructure. That infrastructure
circumstances in which most youngsters spend
includes five essential elements: (1) Parent infor-
their days? Why is it that we, as a nation, have not
mation and engagementthat parents have the
given children the child or health care, the sup-
information to make choices and the time to be
or
learning opportunities,
portive
services,
engaged with their children's learning and their
healthy communities they all need to succeed in
children's programs; (2) Professional development
school and grow into productive adults? Why is
and licensingthat the adults who work with chil-
there a dramatic "disconnect" between our beliefs
dren are appropriately trained and credentialed
about children and the circumstances they face?
so as to ensure children's maximal development;
Not By Chance seeks to address these prob-
lems head-on by bringing to bear the best prac-
(3) Facility licensing, enforcement, and program accred-
itationthat the out-of-home facilities in which all
tices of experienced practitioners, the findings of
children spend their days are adequately licensed
current research, and the considered thinking of
hundreds of parents, early childhood educators,
BEST COPY AVAILABLE
WE MUST THINK about broad definitions
development,
so as to safeguard children's health,
of quality that encompass organizational cli-
and well-being; (4) Funding and financingthat
mate and the quality of the infrastructure,
funded
early care and education is sufficiently
rather than more narrow definitions that
and financed to assure quality; (5) Governance,
take into account only pedagogy.
planning, and accountabilitythat the governance,
WE MUST THINK about using concrete,
planning, and accountability mechanisms for
age-appropriate, child-based results and
devel-
early care and education are sufficiently
goals for children and familiesrather than
oped to sustain a system of efficient, quality ser-
just program inputsas a means of account-
vices.
ability in early care and education.
Not By Chance discusses children's programs
WE MUST THINK about the professional
of the
and services along with these elements
licensing of individuals along with facility
infrastructure. It posits an admittedly immodest
licensing as a means of improving quality
recogniz-
vision for how America might proceed,
services.
ing that conventional thinking and strategies can-
WE MUST THINK about collaborative advo-
that are necessary
not evoke the kinds of reforms
and other
cacy by parents, professionals,
that characterize
to redress the decades of neglect
community stakeholders, not by profession-
Chance
American early care and education. Not By
als alone.
it
thinks long-termto the year 2010. As such,
WE MUST THINK about a long-term vision
for the
does not offer a prescription for legislation
of
of early care and education, not a series
105th or 106th Congress, though some of the ele-
short-term solutions.
immediate leg-
ments may be quite amenable to
FINALLY, WE MUST THINK of improving
islative action. It is not about adding more ser-
early care and education as a challenge that
Not By
vices or more disparate programs; rather,
hinges on rational analysis and planning,
Chance sets new pathways for action.
not on random acts of chance.
of
Not By Chance not only suggests new ways
Given these ways of acting and thinking, some
also
delivering services to young children, but
regarded as quite
aspects of Not By Chance may be
entirely new ways of thinking about youngsters
controversial; other ideas may be more readily
and the programs they receive. Not By Chance sug-
eight
accepted. Specifically, Not By Chance offers
services we must
gests that in order to shift our
order
key recommendations and suggests that in
shift our thinking:
each
for significant change to occur, work on
educa-
WE MUST THINK of early care and
strategies accompany
must ensue. More detailed
tion as a single seamless system, not as a set
each recommendation. The strategies point a
of disparate, categorical, and idiosyncratic
of
clear direction and provide a cohesive set
programs.
actionable items as locales, states, and the nation
WE MUST THINK about services for chil-
and
consider the development of an early care
dren, their families, and their communities,
and
education system, fully recognizing that states
rather than services for children alone.
communities will need to tailor the suggested
WE MUST THINK of early care and educa-
strategies to meet their unique needs.
tion as encompassing family support and
health, not only educational services for
children.
BEST COPY
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NOT BY CHANCE
