Implementation of a new policy in preschools in two municipalities

Effect on children’s well-being

Abstract

The study builds on research on preschool quality and children’s well-being (Melhuish, 2014; Tayler et al., 2016). Icelandic preschool policy, including the Preschool Act (no. 90/2008) and the National Curriculum (Miðstöð menntunar og skólaþjónustu, n.d.), emphasises child well-being across social, emotional, and physical domains. Research indicates that high-quality preschool environments support long-term well-being, whereas lower-quality environments can have a negative impact on young children (Melhuish et al., 2015).

Icelandic preschools operate under a decentralised system, granting municipalities autonomy in administration. This results in diverse operational conditions, including summer openings and variations in financial structure. There are further differences, such as criteria for the number of children in a room or the number of children per teacher. Since 1995, a regulation has been in place regarding the activities of preschools (no. 225/1995), in which both were clearly defined. However, in 2008, the criteria were removed from the law (no. 90/2008). Instead, there are recommendations for a ‘safe and spacious learning and work environment’, noting that the ‘age distribution of children and individuals with special needs, the duration of their stay, the space for children’s play and leraning, and the composition of the staff’ must be considered. The criteria were, therefore, in some ways undefined. A year later, a regulation on the working environment of preschools (no. 655/2009) was enacted, where minimum facilities are defined, and responsibility for the criteria is placed on school principals in consultation with the local government or their representatives. Local authorities thus retain a degree of discretion in shaping opening hours and working conditions.

In 2024, four municipalities introduced financial reforms to improve preschool environments for children and staff. The changes involve the implementation of more affordable or complimentary six-hour preschool programmes, enhanced flexibility in school hours, and the establishment of designated registration days. These registration days allow parents to enroll their children on dates surrounding summer holidays, during school breaks, or between Christmas and New Year. Furthermore, the adjustments include income-based preschool fees and financial support for parents who provide care at home. The overarching objective of these modifications is to encourage parents to utilise only the hours that are essential beyond the six-hour period. This strategy aims to decrease the number of children present in schools during specific times, thereby facilitating the achievement of desired educational outcomes.

This study examines the impact of these reforms in two municipalities, covering 17 preschools. Data were collected through in-depth interviews with administrators and three questionnaires targeting administrators, department heads, and staff. Findings indicate a significant reduction in stress in preschool practice, which benefits children, staff, and administrators. Staff reported experiencing calmer daily routines and enhanced play and learning opportunities. Respondents attributed these improvements to fewer children being present at certain times and more stability in the group of teachers and other staff. Findings demonstrate that these financial reforms have achieved the desired results, contingent on two key factors: smaller groups of children and sufficient staffing. The study highlights the crucial role of financial policies in creating high-quality preschool environments that support children’s play and well-being. The emphasis on child welfare is evident in Icelandic education policy, as reflected in legislation, policies, and priorities in the fundamental aspects of education. At the same time, society is making great efforts to provide preschools for all children, preferably from the age of one, in an environment where staffing preschools, whether with preschool teachers or other staff, has been challenging. The quality of preschool programmes and the qualifications necessary for staff are infrequently addressed within this context, and these issues often evoke sensitivity. Nevertheless, both elements are critical to ensuring the welfare of children in educational settings. It may be timely to reexamine the criteria that define a preschool according to the Preschool Act 90/2008 and to conduct a critical assessment of how various factors influence the education, development, and well-being of preschool children