jou nal o pedagogy 1/2017 33
DOI 10.1515/jped-2017-0002 JoP 8 (1): 33 – 55
Doing s a e policy
a p eschool:
An au oe hnog aphic ale
o uni e sal access o ECEC
in Aus alia
Zsuzsa Millei, B ad Gobby, Jannelle Gallaghe
Abs ac : In 2009, he Aus alian s a es and e i o ies signed an ag eemen o p o-
ide 15 hou s pe week o uni e sal access o quali y ea ly educa ion o all child en
in Aus alia in he yea be o e hey en e school. Taking on boa d he in e na ional
e idence abou he impo ance o ea ly educa ion, he Commonweal h go e nmen
made a conside able in es men o make uni e sal access possible by 2013. We
explo e he ongoing p ocesses ha seek o make uni e sal access a eali y in New
Sou h Wales by a ending o he complex agen ial ela ionships be ween mul iple
ac o s. While we desc ibe he s a e go e nmen and policy make s’ ac ions in de is-
ing unding models o d i e changes, we p io i ise ou gaze on he engagemen o
a p eschool and i s di ec o wi h he s a e go e nmen ’s ini ia i es ha saw hem
de elop a ious unding and p o ision models in esponse. To o e accoun s o hei
pa icipa ion in policy making and doing a he p eschool, we use he di ec o ’s au o-
biog aphical no es. We a gue ha he s a e’s commi men o ECEC emained a o m
o poli ical manoeu ing whe e esponsibili y o policy making was pushed on o
ea ly childhood ac o s. This manoeu ing helped o silence and u he agmen he
sec o , bu hese new p ocesses also c ea ed spaces whe e he sec o can u he
s uggle o ecogni ion h ough he e y accoun abili y measu es ha he go e n-
men has in oduced.
Keywo ds: policy analysis, p o isional numbe s, esis ance, local policy making,
unding o ECEC.
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In oduc ion
Jannelle’s au oe hnog aphic no e: “The demands and expec a ions placed
on a Di ec o o an ea ly childhood educa ion se ice in Aus alia and in pa -
icula NSW place eno mous esponsibili y and, po en ially, powe a he ee
o hese people. How well a e we p epa ed o make ecommenda ions, o -
mula e plans and implemen decisions wi h pa en s, managemen eams, he
communi y and amilies? How do ea ly childhood p o essionals a he o e-
on o se ice deli e y, b idge he chasm which o en exis s be ween go e n-
men policy and p o essional, philosophical and e hical alues?”
In 2009, all s a es and e i o ies in Aus alia signed he Na ional Pa -
ne ship Ag eemen on Ea ly Childhood Educa ion (Commonweal h Go e n-
men , 2009), in which hey commi ed o making 15 hou s p eschool educa-
ion pe week a ailable o each child by 2013. The Pa ne ship e e enced
in e na ional e idence o he economic bene i s o p o iding access o qual-
i y ea ly childhood educa ion and ca e (ECEC). In es men in ECEC was
pa o he na ional P oduc i i y Commission’s economic agenda ha sough
o c ea e a mo e p oduc i e wo k o ce, and i was de ended on economic
g ounds, such as inc easing women’s p oduc i i y and imp o ing lea ning
ou comes o educe u u e cos s associa ed wi h unde achie emen . The
Commonweal h go e nmen , which had no been in ol ed in his sec o o
mo e han h ee decades, decided o di ec ly in es in ea ly educa ion. The
in es men was passed down di ec ly o he s a es and e i o ies who in
u n we e us ed o adminis e he implemen a ion o uni e sal access o
quali y ECEC. The Pa ne ship ini ially se a a ge o he achie emen o
uni e sal access by 2013; howe e , his has ye o be eached pa ly due o
he s a e o New Sou h Wales (NSW) (CoAG, 2016).
We a e in e es ed in explo ing he ongoing p ocesses ha a e aking place
o secu e uni e sal access, bu no om he pe spec i e o he go e nmen
and policymake s, al hough hei ac ions will be desc ibed. Ra he , we a e
in e es ed in explo ing he pe spec i e o a p eschool, and p incipally i s
di ec o , ha has been in ol ed in uni e sal access. This is a bo om-up
iew o policy ha enables us o ob ain insigh s in o he dynamic, eme gen
and o en ad hoc na u e o doing policy (Go u , 2011). I migh be easy o
sugges , based on he policy o uni e sal access and he inc eased na ional
in es men s made o ECEC, ha he g owing in e na ional impo ance o
ECEC has had an e ec on he s a us o he ield in NSW. Howe e , by ex-
plo ing uni e sal access om he p eschool pe spec i e, and by accoun ing
o he dynamics o doing policy a he local le el, di e en conclusions can
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doing s a e policy a p eschool: an au oe hnog aphic ale o uni e sal access o ecec in aus alia
35
be d awn. Ou ques ion hen is: Ha e he in e na ional discou ses and e i-
dence sough o enhance he impo ance o ECEC in socie ies – i s posi i e
e ec s on na ional economies, i s po en ials o ackle inequali ies and en-
hance child en’s li elong lea ning – inc eased he s a us o he ECEC sec o
in NSW?
We answe his ques ion by combining policy analysis wi h he selec ed
au oe hnog aphic no es o a p eschool di ec o (co-au ho Jannelle). Since
he elease o he Pa ne ship documen , Janelle has been in e es ed in uni-
e sal access. As pa o he Mas e s p og am, she s a ed o documen
changes ha occu ed bo h a policy and p ac ice le els in he p eschool.
Al hough seldom ound in policy analysis, au obiog aphical na a i es a e
inc easingly used in educa ion esea ch. Such esea ch a o ds an inside
pe spec i e: “Because au oe hnog aphy p esen s a pe son’s expe ience in
he con ex o ela ionships, social ca ego ies, and cul u al p ac ices (o he
iola ion o hese ela ionships, ca ego ies and p ac ices), he me hod e els
in sha ing inside knowledge abou a phenomenon” (Jones, Adams & Ellis,
2016, p. 34). Jannelle w o e he s o ies as a cul u al inside . The e en s she
epo s on wo k as “e oca i e hick desc ip ions o pe sonal and in e pe -
sonal expe ience” (Ellis, Adams & Bochne , 2011, no p.). He s o ies a e con-
s uc ed om he ield no es, discussions and documen s and a ailable poli-
cies. These s o ies a e accoun s o how she and he colleagues ha e wo ked
h ough go e nmen policies. We ha e analysed he no es and expe iences,
which po ay an ins ance o ‘doing policy’ (Go u , 2011), and a e expe i-
ences po en ially sha ed by o he s in he sec o (Ellis, Adams & Bochne ,
2011). Jannelle also belongs o di e en eg oups and a di ec o s’ g oup ha
discusses issues ha ma e o hem. While she does no quo e hese dis-
cussions, he summa ies o wha was discussed and how, p o ide us wi h
some insigh s as o he pe spec i es and p ocesses ound in he sec o . All
he au ho s o his pape ha e engaged wi h hese s o ies by using analy i-
cal concep s wi hin he gene al ame o ‘doing policy’ (Go u , 2011) o shed
some ligh on he nego ia ions on uni e sal access and some o hei e ec s.
Besides subjec ing hese s o ies o academic analysis, we also see hem as
p oduc i e, since hey c ea e connec ions wi h o he s’ ac ions in he sec o
and may s imula e eade s o e lec on hem (Bullough & Pinnega , 2001).
In he nex sec ion we in oduce some backg ound o uni e sal access
using he au oe hnog aphic no es and a b ie his o ical e iew o de elop-
men s. We hen in oduce he no ion o ‘doing policy’ o concep ually ame
ou analysis o he uni e sal access policy. The pape hen uses au obio-
g aphical no es o explo e policy om he pe spec i e o a p eschool. We
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conclude wi h a discussion o answe he ques ion we aised and also o add
o he cu en li e a u e on doing policy in ECEC.
Uni e sal Access: In e na ional Discou ses
and S a e ECEC Policies
In Aus alia o e he pas 7 yea s he ea ly childhood landscape has
changed d ama ically, equi ing s a , managemen commi ees, child en
and he communi y o wo k oge he o deli e uni e sal access o high qual-
i y ea ly childhood educa ion ha is esponsi e o communi ies’ needs and
wishes. P e iously, in New Sou h Wales, each cen e ope a ed wi hin i s local
con ex o en in geog aphic isola ion. Communi y based p eschools we e gen-
e ally cash s apped lea ing li le money o inance con e ences o ainings
o s a , which we e an in aluable oppo uni y o ne wo k and c oss pollina e
ideas. Inno a i e p ac ices eme ged and gene ally slipped unde he ada .
The d eaded su p ise spo isi s om he egula o y au ho i y (child en’s se -
ices ad iso ) sen se ices in o a s a e o panic. In eali y, I belie e se ices
enjoyed he au onomy o going abou hei daily business, bu hey also el
isola ed. We accep ed wha was imposed upon us om he go e nmen . Then
hings began o change wi h he in e ne and social media. We ha e ealised
ha o he cen es sha ed he issues we we e conce ned abou . We pushed
back and engaged in ac i is wo k o ge mo e unding o make ECEC mo e
accessible o amilies. We w o e a ious submissions o go e nmen s ais-
ing awa eness o he impo ance o ECEC, ough o pay pa i y wi h school
eache s and o upli he s a us o he sec o , and o b ing he impo ance o
child en and hei oices in o communi ies and o he go e nmen .
The Pa ne ship’s (CoAG, 2008) goal o uni e sal access o 15 hou s pe
week ( o 40 weeks pe yea ) o ea ly lea ning p og ams o child en in he
yea be o e hey en e school is ela i ely minimal in compa ison o o he
na ions’ p o isions. Fo example, in Finland “child en aged 0-6 yea s ha e
a igh o ea ly childhood educa ion” (Ka ila, 2012, p. 585), which means ac-
cess o i e days ull- ime quali y ins i u ional educa ion and ca e pe week.
Aus alia’s p o ision o ECEC, in compa ison, can be cha ac e ised his o i-
cally and a p esen in he ollowing way:
• gene al unde in es men in ECEC a ede al and s a e le els;
• highly a ied, complex and s a e speci ic p o isions ha a e unded
mos ly by ees paid by amilies;
• low p es ige o he sec o ;
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doing s a e policy a p eschool: an au oe hnog aphic ale o uni e sal access o ecec in aus alia
37
• he lack o alue placed on young child en’s ins i u ional ca e and educa-
ion; and
• he con inued ma ke isa ion, p i a isa ion and co po a isa ion o he
sec o (Wood ow & B ennan, 2000; P ess & Wood ow, 2005; Dowling &
O-Malley, 2009; Naumann, 2011; B ennan, 2012).
Du ing he 2000s, discou ses o he economic bene i s o ECEC, uni e sal
access, quali y educa ion, p o essionalisa ion and neu oscience e idence
quickly gained a oo hold among p o essionals and policymake s (U ban,
2008). These global policy discou ses amed e o ms in Aus alia ini ia ed
by he Rudd Fede al Go e nmen ha in 2009 led o s a es and e i o ies
signing he Pa ne ship Ag eemen (CoAG, 2009). While uni e sal access
seemingly ep esen s a sma economic choice o he na ion, he sys ema-
isa ion needed o pu sue uni e sal access did no p og ess h ough la ge
economic in es men s in NSW. As he B ennan (2012) e iew shows, he
NSW S a e go e nmen main ained i s unding o 177, 6 million Aus alian
dolla s and he Commonweal h go e nmen added o his $27,4 million in
2010/11, 82,5 million in 2011/212 and $142 million in 2012/2013. This
unding is especially low in compa ison o o he s a es’ spending on ECEC
pe child in 2010/2011: New Sou h Wales $190, $266 Vic o ia, $489 Aus-
alian Capi al Te i o y, $499 Sou h Aus alia, $556 Wes e n Aus alia and
$1,033 No he n Te i o y (B ennan, 2012). The ex a unding p o ided by
he Na ional Pa ne ship was no su icien o b ing NSW o a pa wi h o he
s a es wi hou conside able addi ional in es men om he s a e go e n-
men . To achie e his a signi ican change, beyond inc eased inancial in-
es men , was needed along wi h a s ong commi men o and inc eased
alue being placed on ECEC.
Up un il 2011, NSW o e ed nume ous easons explaining why he in-
oduc ion o uni e sal access would be di icul wi hin he s a e (The Allen
Consul ing G oup, 2011). O he s a es, such as hose wi h a la ge p e i-
ous inancial commi men o ECEC and wi h p o ision ha could be ead-
ily al e ed o he 15 hou s pe week pa e n, we e well ad anced by his
ime. By 2013, hey had eached he goal o o e ing access o 600 hou s
o quali y ea ly childhood educa ion p og ammes o child en o p e-school
age. When he na ional Ea ly Childhood Minis e , Pe e Ga e h, in 2011 ex-
p essed he Gilla d go e nmen ’s conce ns abou NSW p og ess owa ds he
achie emen o he Pa ne ship’s goals, he s a e esponded wi h a numbe
o ini ia i es, such as a call o p eschools and long day ca e cen es o ial
implemen a ion; commissioning he B ennan Re iew and subsequen ly e-
leasing a P eschool Funding Model and he Long Day Ca e G an s P og am
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o suppo he en olmen o child en speci ically a ge ed o uni e sal ac-
cess (4 yea olds be o e s a ing school and 3 yea olds om disad an aged
backg ounds, also called ‘equi y child en’). (See subsequen uni e sal ac-
cess policies and e iews in Table 1.)
Table 1 Uni e sal Access policies, e iews and ini ia i es
The majo policy implemen a ion pla o ms a e he unding models. Be-
ing independen ly o ganised uni s, budge calcula ions we e and s ill a e
c ucial o ensu ing he iabili y o p eschools and long day ca e. Running
he policy e o m on new unding models engaged wi h his c i ical aspec o
p o isioning. ECEC uni s su i e on amily paid ees and a ge ed subsidies
paid by he s a e and a e esponsible o s a sala ies and all o he cos s as-
socia ed wi h he unning o p og ams, including he main enance o build-
ings o en al paymen s, and esou ces. In his con ex , and in o de o
enable pa icipa ion in 15 hou pe week educa ional p og ams, p eschools
engaged in modelling and calcula i e p ac ices o achie e op imal en olmen
and unding, which hen became in eg al o policy enac men and o ma-
ion. This also esul ed in p eschool di ec o s in NSW ha ing o nego ia e
a ange o inancial and p o essional a ionali ies. This pape examines his
‘doing o policy’ om he poin o iew o he Di ec o o a p eschool. The
nex sec ion o e s an explana ion o ou aming o he Di ec o ’s ac i i ies
as ‘doing policy’.
‘Doing Policy’: F aming he Analysis
While policymaking is o en app oached analy ically as a a ional and
linea p ocess in ol ing de ini e ac o s in a policymaking domain coalesced
a ound speci ic p oblems, we ake a di e en app oach. We d aw upon he
2009 2011 2012 2012 2013 2014 2014 Sep . 2015 Dec. 2016 Jan. 2016 Sep .
Na ional
Pa ne ship
Ag eemen
on Ea ly
Childhood
Educa ion1
The Allen
Consul ing
G oup
epo
B ennan
Re iew
o NSW
go e nmen
unding2
Tende s
o 15 hou s
o p eschool
ial ha
emained
non-
esponded
o by NSW
go .
Release o
new unding
models:
P eschool
Funding
Model and
Long Day
Ca e G an s
P og am
Re iew o
he Na ional
Pa ne ship
Ag eemen
on Uni e sal
Access
o Ea ly
Childhood
Educa ion3
Common-
weal h
ex ends
Na ional
Pa ne ship
unding
ill he end
o 20154
Communi y
P eschools
600 hou s
Incen i e5
Common-
weal h
ex ends
Na ional
Pa ne ship
unding ill
30 June
20156
S a
S ong
Ini ia i e7
1h ps://www.educa ion.go .au/na ional-pa ne ship-ag eemen s
2h ps://www.de .nsw.edu.au/media/downloads/abou -us/s a is ics-and- esea ch/public- e iews-and-enqui ies/ e iew-o -nsw-go e nmen - un-
ding- o -ea ly-childhood-educa ion/ e iew_nsw_go _ unding_ece.pd
3h ps://www.scseec.edu.au/si e/De aul Si e/ ilesys em/documen s/Repo s%20and%20publica ions/EC%20Publica ions/NP_UAECE%20Re iew-
220415.pd
4h ps://www.abc.ne .au/news/2014-09-05/ ede al-go e nmen - o-commi -milions- o-p eschool-ex ension/5722836
5h ps://www.de .nsw.edu.au/media/downloads/wha -we-o e / egula ion-and-acc edi a ion/ea ly-childhood-educa ion-ca e/use ul-links/20117-
-Guidelines- o -P eschools-600-hou s-incen i e.pd
6h ps://www. ede al inancial ela ions.go .au/con en /npa/educa ion/na ional-pa ne ship/2016_2017_uni e sal_access_NP.pd
7h ps:/ccccnsw.o g.au/wp-con en /uploads/b oadside-09-10-16.pd
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doing s a e policy a p eschool: an au oe hnog aphic ale o uni e sal access o ecec in aus alia
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no ion o ‘policy assemblage’ (Cla ke e al., 2015; Go u , 2011) and he a -
gumen ha we need o “unde s and he un idy and appa en ly chao ic and
complex p ocesses in ol ed in he ‘doing’ o policy” (Go u , 2011, p. 613).
Go u p e e s he e m ‘doing policy’ o e ‘policymaking’ because i chal-
lenges adi ional app oaches o policy analysis ha pape o e he ad hoc
and p o isional condi ions o policy wi h a ional- ealis accoun s. ‘Doing
policy’ dispels he no ion ha policy making in ol es one g oup o policy
making agen s and ano he g oup o policy use s who implemen policy.
Go u claims ha he a i icial dis inc ions be ween policy make s, policy
use s, policy making, policy implemen a ion and policy con ex do no do
jus ice o policy wo k which is in ac “dynamic, eme gen and unce ain”
(Go u , 2011, p. 613).
This is consonan wi h Ball’s (1994) ea lie wo k in o he incomple eness
and ad hocke y o local p ac ices o educa ional policymaking. Ball, Magui e
and B aun (2012) in oke he e m ‘policy enac men s’ in hei s udy and
cha ac e isa ion o educa ion policy. In hei accoun , social ac o s do no
i in o he nea dis inc ion be ween policymake s loca ed in poli ical and
bu eauc a ic ins i u ions and policy implemen e s in he social ield. Mo eo-
e , “ ew policies a i e ully o med and he p ocess o policy enac men
also in ol e ad-hocke y, bo owing, e-o de ing, displacing, making do and
ein en ion. Policies a e some imes poo ly hough -ou and/o poo ly w i -
en and become ‘ ew i en’ o ‘ e o- i ed’ as go e nmen objec i es change
o minis e s mo e on” (Ball e al., 2012, p. 8). Policy analysis mus he e o e
a end o he a iega ed, non-de e minis ic and con ex -speci ic p ac ices
o policy in e p e a ion, ansla ion and enac men s ac oss global, na ional
and local si es (Cla ke e al., 2015; Riz i & Linga d, 2010). Local agen s,
a he han being me ely policy use s, engage in p ac ices o associa ion,
in e p e a ion, ansla ion and policy c ea ion in nego ia ing he complex
discu si e, social and o ganisa ional ield ha poli ical and go e nmen al
au ho i ies seek o ins umen alise and go e n. This pe spec i e ecognises
ha go e ning h ough policy is a congeni ally ailing en e p ise, whe e ide-
as and plans and he alues unde pinning hem, s uggle o accommoda e
he messy ac uali ies o li e, and whe e go e ning elies no on dic a es, bu
on p ac ices o in luence, pe suasion, coali ion building and he ansla ion
ac oss space o in e es s and a ionali ies (Rose & Mille , 1992).
Fo Go u (2011), “ph asing he ques ion in e ms o ‘doing policy’ makes
oom o explo e he many si es, p ocesses, p ac ices and ac o s ha migh
be in ol ed in policy being ‘done’. I lea es open he ques ion o how agency
is mobilised” (2011, p. 614). This ques ion o agency is pe inen , especially
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o ou cu en s udy. Educa ion bu eauc acies we e once ea ed as cen-
es o policy o ma ion, and schools as si es o policy adminis a ion, how-
e e , policy wo k is being de ol ed away om cen es o au ho i y ha once
ma ked he wel a e s a e (Ozga, 2014). Inc easingly, a ne wo k on ology is
dis up ing he es ablished ne wo ks o expe ise, and knowledge p oduc ion
and use a e opening up oppo uni ies o a ange o social ac o s o in lu-
ence policy (Ball, 2009; Ball & Junemann, 2012). As such, policy analysis
mus a end o he complex agen ial ela ionships be ween mul iple ac o s
o g asp “how mul iple ac o s a e d awn in, how he ela ions be ween hem
a e o med, and how hey in e ac wi h each o he ” (Go u , 2011, p. 617).
The au obiog aphical no es used in his esea ch a e use ul he e because
hey p o ide a ex ual accoun o he local expe iences o policymaking and
doing. The ollowing sec ions examine he engagemen o he p eschool and
i s di ec o in he s a e go e nmen ’s ini ia i es.
‘Numbe C unching’: Mee ing Ta ge s
bu Main aining Values
The s a e go e nmen was p oduc i e in coming up wi h explana ions abou
why i will be di icul o implemen uni e sal access in NSW (The Allen Con-
sul ing G oup, 2011). Ou model o p o ision o 6 hou s pe day did no wo k
well wi h he 15 hou s. A e he B ennan Re iew (2012) he s a e eleased
a ende asking o p eschools o p o ide some models h ough which 15
hou s o p eschool p o ision could be secu ed. I was in e es ed o ge my
head a ound i and selec ed his issue as my assignmen in my Mas e s p o-
g am. Ou p eschool submi ed a couple o possible models bu he e was no
esponse o any submission model om he go e nmen . In 2013 p eschool
di ec o s and pa en managemen commi ees in NSW we e ad ised ha
a new unding model would eplace he exis ing Resou ce Alloca ion Model
(RAM.) Following some o he ecommenda ions o he B ennan epo (2012),
a new unding model was bo n, i led he P eschool Funding Model (PFM).
The e we e many in-house con e sa ions wi h commi ee membe s, pa en s,
educa o s and eache s all ying o unde s and how o implemen he new
model wi h in eg i y.
The ede al go e nmen ’s commi men o ECEC wi h he Na ional Pa ne -
ship made he sec o eel mo e app ecia ed. Expe iencing long e m neglec
om bo h Commonweal h and s a e go e nmen s, he sec o willingly came
o he pa y o achie e uni e sal access since his also cu o he hea o
hei hopes o ECEC: p o iding quali y ECEC o each child (Mac a laine &
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doing s a e policy a p eschool: an au oe hnog aphic ale o uni e sal access o ecec in aus alia
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Lewis, 2012). Pu suing his goal, howe e , equi ed p o essionals o engage
in ex a wo k and app oach he issues a hand wi h c ea i i y, ini ia i e, and
a eadiness o new s uc u es, p ac ices, and new models and calcula ions.
The 15 hou equi emen has shi ed he ocus on o 4-yea olds, child en
om disad an aged backg ounds and om Indigenous amilies. Uni e sal
access p esen ed conside able challenges o se e al easons: 1) he changed
ocus on only 4-yea olds disad an ages 3-yea olds’ en olmen , 2) change in
he weekly p o ision pa e n allows less child en o access p eschool edu-
ca ion o e all, 3) change in numbe o eache s wi h ou yea s’ aining on
s a o allow o a new pa e n o p og am p o ision and educa o s o be
os e ed in wi h hem, 4) a ailabili y o amilies willing o en ol hei child en
o 15 hou s since i mean inc eased weekly ees and changed a endance
pa e ns, 5) ocus on en olmen o child en whose educa ion equi ed spe-
cial p o essional knowledge and s a , 6) changes in budge due o inc eased
paymen o eache s (compa ed o educa o s paid a lowe sala ies) and
ex a p o essional s a and 7) dec eased subsidies o 3-yea olds. These
s uc u al and s a appoin men issues we e u he complica ed wi h he
new subsidies deli e ed as he P eschool Funding Model (PMF) aimed o
compel p eschools o a ge pa icula child en (See summa y on Figu e 1).
We had g ea empa hy o he amilies o ‘non-equi y’ 3 yea olds and con-
ce ns ha wi hou hem ou se ices will be inancially isky i no inope able.
I was common knowledge ha e e y second yea , mos NSW p eschools e-
lied hea ily on 3 yea olds o ensu e ull u iliza ion. We we e en e ing ou
wo-yea cycle o equi ing 3 yea -olds and wi hou hem we would ha e an
emp y oom. Consequen ly, he e we e less ees collec ed and no money o
s a o ope a ional cos s. This was a h ea o ou p eschool and one we we e
no p epa ed o en e ain. E en wi h agg essi e ad e ising campaigns, le -
e box d ops and ma ke ing, 3 yea olds we e needed e e y yea o ill up
numbe s. 3 yea olds in ou p eschool we e “ou li e blood” and we needed o
honou his. Bu since go e nmen unding was no p o ided o h ee yea s
olds (excep i hey came om he a ge ed g oups) we also we e obliga ed o
ensu e unding was maximized in o de o educe ees, hus had o en ol he
a ge ed child en en olling wi h he la ges subsidies. We knew all oo well
ha a o dabili y was he key o accessibili y o all child en. Thus, ha ing
mo e subsidies mean cheape ees o o he s oo.
Commi ee membe s and s a a ended in o ma ion sessions unded by he
Depa men o Educa ion and deli e ed by peak bodies, such as Communi y
Child Ca e. These aining sessions ha e le he pa icipan s con used and
ang y. Many di ec o s oiced hei conce ns abou he numbe o changes
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o ea ly childhood educa ion. La e he e was a ollow-up call asking me o
cla i y and elabo a e on poin s o in e es o he Depa men , including ou
inc eased pa icipa ion o Abo iginal child en. Again a ew days la e a hi d
call eques ed ha ou cen e pa icipa e in a ideo clip suppo ing he imple-
men a ion. We ag eed bu we e unsu e o when his would occu . Howe e ,
his happened e y expedien ly and wi hou hesi a ion we complied, mind ul
o p omo ing he g ea wo k we do a he p eschool as well beyond wha hey
expec ed us o epo on.
In Sep embe 2016, as i o de lec he nega i e publici y, he Minis e o
Ea ly Childhood Educa ion and Abo iginal a ai s, Leslie Williams, and he
P emie Mike Bai d held a p ess con e ence o announce he S a S ong ini-
ia i e10 ha aimed o suppo he s a e go e nmen . The iming o he an-
nouncemen was poo ly planned wi h mos p eschools al eady comple ing
hei en olmen s. Many p eschools we e o e ing 1 day p eschool o child en
be o e school, which e ec i ely mean no base unding. The Go e nmen has
p omised “85 million o communi y p eschools, a ge ed a inc easing 600
hou en olmen s and educing ees”11. The sec o esponded: ‘Whe e is he
es o he 365 million M Bai d?’ The demand was o ha e an oppo uni y o
an open discussion abou his unde spending. This demand was o e shad-
owed by he issue o he go e nmen banning g ey hound acing.
The sec o once again became di ided. On op, leade ship changes in peak
bodies unse led he sec o . Ou online o um se up in 2006 o educe he ag-
men a ion and isola ion o ea ly childhood p o essionals, p o ided g ea sup-
po and con idence o di ec o s. I was a sa e place o discuss he changing
si ua ions in he ea ly childhood sec o among p o essionals. To help make,
main ain and c ea e connec ions be ween di ec o s and s a wo king in p e-
schools, bu pe haps also o b eak he sa e ci cle o he online g oup and ge
some insigh s in o s a hinking and a i udes, he go e nmen se up a new
o um called he S a S ong Ehub. The Go e nmen ha e also in es ed in
a pa en awa eness campaign called ‘I makes you hink’12 o help p eschools
o p omo e he impo ance o p eschool o amilies.
These au oe hnog aphic no es e eal us a ion owa ds he go e nmen
and i s lack o ecogni ion o he sec o . Passing on he esponsibili y o
10 h p://ccccnsw.o g.au/wp-con en /uploads/b oadside-09-10-16.pd
11 h p://www.dec.nsw.go .au/wha -we-o e / egula ion-and-acc edi a ion/ea ly-child-
hood-educa ion-ca e/ unding/s a -s ong e
12 h p://www.dec.nsw.go .au/wha -we-o e / egula ion-and-acc edi a ion/ea ly-child-
hood-educa ion-ca e/ unding/s a -s ong/in o- o -pa en s
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doing s a e policy a p eschool: an au oe hnog aphic ale o uni e sal access o ecec in aus alia
49
he in e p e a ion and implemen a ion o uni e sal access o he sec o ,
demanding ha hey change hei ope a ing hou s, s uc u e o p o ision,
s a con ac s and unding a angemen s, all ep esen ed in hei iew he
con inued unde aluing o he wo k hey do. ‘Consul a ion’ mani es ed as
a one-way p ocess whe e he go e nmen has sough and inco po a ed he
esul s and insigh s gained h ough modelling a emp s a a p eschools,
such 600 hou s p o ision models, inancial models, c ea ion o discussion
g oups and amily communica ion pla o ms e c., making he sec o policy
in o ming and o ming (G ek & Ozga, 2010). While hei signi icance in do-
ing policy has been g ea ly ele a ed, his impo ance only pa ly ansla ed
in o he ecogni ion o he sec o . The alloca ed s a e unding o ECEC was
wi hheld, he sec o was expec ed o con inue doing hei wo k and secu ing
he ex a hou s needed o ul il he equi emen s o uni e sal access in hei
spa e ime, and issues ha we e so c ucial o he sec o we e o e shadowed
by mo e ‘popula ’ issues in he poli ical sphe e. Wi h he ball in he sec-
o ’s cou , he go e nmen a oided any obliga ion o p o ide ex a inancial
suppo o p o essional aining o cen es o lea n inancial and gene al
managemen and o suppo changes. Building on he success o some mod-
els de eloped in cen es, he go e nmen decided o pu up hese cases as
examples o o he s o ollow. These ideos we e no p omo ed o exp ess
ecogni ion o he emendous wo k and e o some playe s pu in o eal-
ise go e nmen ini ia i es, a he hey we e used o he go e nmen ’s own
p omo ional pu poses, o make he sec o lea n by example.
Lacked o ecogni ion om he s a e go e nmen is an emblema ic ap-
p oach o a sec o ha is his o ically buil on exploi ing he willingness o
colleagues o do he bes o child en and amilies wi hou due inancial and
p o essional ecogni ion (Mac a laine & Lewis, 2012). In his case, he go -
e nmen assumed ha s a will con inue wi h i egula and unpaid hou s
in eaching, adminis a ion and in campaigning o mo e en olmen s, o
wo k o longe days han hei coun e pa s in schools. To add insul o
inju y, he go e nmen announced i would spend $80 million on he S a
S ong ini ia i e while wi hholding he balance he sec o was long due.
The p ocesses and p ac ices ha o malised in p eschools o en coun-
e ed he sec o ’s ad ocacy e o s o imp o e hei wo k condi ions and e e-
y child’s igh o quali y ea ly educa ion (e en i included in he Ea ly Yea s
Lea ning F amewo k (ADGEEWR, 2009)). This e ealed a gul be ween he
sec o and he go e nmen . Ins ead o suppo ing ad ocacy e o s o chil-
d en’s ea ly educa ion, he go e nmen c ea ed new communica ion chan-
nels, such as he new o um called he S a S ong Ehub, wi h an agenda
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o help make, main ain and c ea e connec ions be ween di ec o s and s a
wo king in p eschools. This ini ia i e was again only some hing ha he go -
e nmen had done o mi o an al eady exis ing eg oup. Di ec o s o en el
ha wi h his new ehub, he go e nmen was a emp ing o no only b eak
up he sec o ’s uni ying and s eng hening oice on an es ablished o um,
bu o also co-op o i s own ends he sec o ’s ne wo ks.
Howe e , gaining he ole o o ming policy, calcula ion and modelling c e-
a ed also spaces o he hopes o he sec o s o be exp essed. Fo example,
Jannelle has s a ed o en e in o he online epo ing sys em hou s ha she
and he s a wo ked o e ime, especially hose hou s spen illing ou he
uni e sal access o ms. The bu eauc acy esponded ha hese a e in alid
numbe s bu he p eschool keeps inpu ing hem, since as Jannelle says “i
he e is enough ‘squeak’ in he sys em he go e nmen migh s a o oil i ”.
They also pu one day p o essional de elopmen e en s down as wo king
hou s and s a ing o ensu e hey a e seen by he go e nmen , since as Jan-
nelle a gues: “ his is wha i cos s o un a quali y se ice. We do no wan
o un he se ice as he go e nmen uns he policy – so we mus include
his in ou budge and le he go e nmen know”. We a gue ha he open-
ings ha we e c ea ed in pu ing he policy o uni e sal access in p ac ice,
while o en seen as an addi ional bu den on p eschool s a , also allowed
new o ms o ac i ism o de elop.
Concluding Discussion
ECEC in NSW is cons i u ed by a di e se ield o s a e, communi y and
p i a ely un and ela i ely au onomous cen es o en compe ing o en ol-
men s and he go e nmen subsidies a ached o hem. O he han licens-
ing, egula ing and subsidising ECEC, since 2009 he s a e has needed o
exe mo e ini ia i e and e o o achie e uni e sal access. The s a egies
and mechanisms used by he s a e in i s uni e sal access policy included
se ing and p omo ing s a egic goals o he sec o ; se ing unding pa am-
e e s o achie e hese goals; p o iding inancial incen i es o has en he
accomplishmen o he goals; and educa ing h ough examples using he in-
e ne and ideos. He e, decisions and ways o wo king we e no imposed by
he s a e. Ra he , decisions and esponsibili y o eaching uni e sal access
we e de ol ed o p eschools and long day ca e cen es who we e expec ed o
ind ways o wo k wi hin he new pa ame e s. Un o una ely o he sec o ,
he s a e go e nmen made no se ious inancial commi men o enable a -
o dable access o quali y ea ly childhood educa ion o all beyond wha he
Commonweal h go e nmen has p o ided. Ins ead, i elied mos ly on he
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sec o o be c ea i e in accommoda ing he new unding o mulas o achie e
‘uni e sal access’. Mo eo e , no p o essional de elopmen esou ces we e
p o ided ha migh ha e p epa ed p eschools o shoulde hese inancial
and managemen esponsibili ies. Thus, he go e nmen ’s app oach main-
ly elied on u ilising he ini ia i e, c ea i i y, agency and esou ces o p e-
schools, which poses a po en ial o (and con inua ion o ) s a exploi a ion
in small cen es seeking o emain iable and o p o ide ECEC o amilies
(see Osgood 2009, Mac a laine & Lewis, 2012).
The inancial p eca iousness o he sec o and he di ec o and s a ’s be-
lie s in a o dable and uni e sal access o ECEC mean ha he p eschool
had li le choice bu o espond o changes in go e nmen policy and unding.
The uni e sal access goals and he unding changes used o achie e hese
goals bo h h ea ened and o e ed oppo uni ies o i s inancial iabili y.
Ku i Ku i used a se ies o calcula ions wi h ‘p o isional numbe s’ p o ided
by he s a e o model a numbe o possibili ies o op imising hei income
and en olmen . P o isional numbe s in his way became p oduc i e and
“se he ules, schema and amewo ks ha cons ain[ed] and con ain[ed]
he social wo ld” and became he ules o he game: uni e sal access (Bee ,
2015, p. 10). In he calcula i e spaces, as Callon and Muniesa (2005) ex-
plain, en i ies - child en, p o essionals, balances, philosophies - gained new
alue by calcula ion and judgemen in a con inuous game o alue assign-
men and op imisa ion. Thus, numbe s we e p oduc i e in shaping how he
child en, p o essionals, and ECEC i sel is alued and e alua ed, in o he
wo ds, in shaping he cul u e o and cul u al iews on ECEC and i s ac o s,
and on wha , who and wha wo k is o be alued and how.
The p ac ices o med and s eng hened h ough p o isional numbe s also
e-insc ibed pa icula no ions o p o essionalism o ECEC wo ke s. The
ques ion o p o essionalism in he sec o has been la gely o ien ed o he
e ec s o he egula o y appa a us, he a gumen being ha he gaze o e
he sec o esul ing om egula o y amewo ks and accoun abili y equi e-
men s diminishes hei au onomy and judgmen (Osgood, 2009). This e-
sea ch poin s o how he si ua ed ways in which ECEC wo ke s do policy e-
insc ibes p o essionalism wi hin he discou ses o co po a e manage ialism,
acco ding o he logics o a ionali y, measu abili y and compe i ion (Os-
good, 2004). The calcula i e p ac ices engaged in by he di ec o and s a
a Ku i Ku i a ound he objec i es o maximising inances and en olmen s
posi ions ECEC leade s – whose posi ioning is also main ained by he go -
e nmen - as comme cial ope a o s, which o en uns coun e o he belie s
and p ac ices o many in he sec o (Osgood, 2006; Mac a laine & Lewis,
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2012). Bu despi e his discu si e posi ioning, oppo uni ies o esis ance
also a ise because o he openness and agency o policy-making and policy
doing (Go u , 2011; Ball e al., 2012).
Fo example, he calcula i e p ocesses enabled he solidi ying o Ku i
Ku i’s philosophical posi ions, which isk being eschewed by he echno-
c a ic emphasis o manage ialism. The compe ing p io i ies o he go e n-
men and he p eschool we e b ough in o s a k elie as p eschool s a and
he commi ee sough o ecognise e e y child’s igh o educa ion (i.e. 3-yea
olds) and pa en s’ wishes o his. The p eschool s a we e no complian
wi h he wishes o go e nmen , as i hey we e me e ciphe s o ex e nally-
p oduced policy. Being pa o he hie a chical powe ela ions and ins ead
o o e ly esis ing hem, hey mobilised powe in al e na i e ways o esis .
As Foucaul amously explained: “Whe e he e is powe , he e is esis ance,
and ye , o a he consequen ly, his esis ance is ne e in a posi ion o
ex e io i y in ela ion o powe ” (Foucaul , 1979, p. 95). The p eschool s a
b ough o he a ionali ies o bea on o he uni e sal access policy, in wha
migh be desc ibed as he exe cise o an ‘ac i is p o essionalism’ whe eby
educa o s:
cul i a e us wi hin hei se ing and beyond wi h o he s akeholde s
such as pa en s and policy make s; demons a e ac i e us whe e
philosophical app oaches, alues and app oaches a e collabo a i ely
and openly deba ed and owned; and c i ically e lec on he ‘s a e o
play’ so as o gene a e op ions whe e hey can ac a he han be ac ed
on. (Fenech e al., 2010, p. 91-92).
‘Doing policy’ a Ku i Ku i in ol ed engaging in calcula i e p ac ices and
s akeholde discussions in o de o a i e a a sui able comp omise – one
ha op imised en olmen s and income, while also keeping he philosophi-
cal commi men o he en olmen o 3-yea olds. In his policy enac men ,
he p eschool p ac ised an ‘e hic o esis ance’ (Lenz-Taguchi, 2006, p. 270).
The concep ual unde s anding o ‘doing policy’ highligh s he impo ance o
p e e ences exp essed in he needs and desi es o ac o s, p o isional num-
be s and calcula i e egimes ha help channel he o malisa ion o p ac ices
and he o ma ion and enac men o policy. I also makes isible he oppo -
uni ies ha local ac o s ake o in luence policy and o ad oca e o hei
in e es s.
In sum, while he mo e o uni e sal access in NSW was in some espec
suppo ed by he s a e go e nmen , a mo e pa icula is ic analysis o he
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policy and i s enac men s e eal a a iega ed pic u e, in which he go e n-
men showed qui e a emo ed posi ion. In his way, we could a gue ha
he s a e main ained i s minimal in ol emen and in es men in he sec o ,
despi e in e na ional discou ses and a emp s o aise he social s anding
and unding o ECEC and he hope ha is in es ed in ECEC in e ms o i s
equalising ole o young child en and i s economic bene i s o socie ies.
The go e nmen hesi a ed o ge in ol ed in he ‘ isiona y policy making’
ha would ha e allowed uni e sal access o be achie ed by aising he p es-
ige o he p o ession and he impo ance o young child en’s educa ion in
NSW communi ies (B own & Sumsion, 2016). Ins ead, i wai ed o he sec-
o o de elop models and s a egies, and isions, in esponse o p o isional
numbe s p oduced by hem. Thus, ins ead o a eal commi men o imp o -
ing he s a e o ECEC in NSW, he s a e’s commi men o ECEC is a o m o
poli ical manoeu ing whe e i s , esponsibili y o policy making is pushed
o ea ly childhood ac o s u he emo ing he s a e’s adminis a i e espon-
sibili y, and second, whe e s a e ini ia i es silence and agmen he sec o ,
and hwa ad ocacy o be e ecogni ion. Howe e , as he au obiog aphi-
cal no es illus a e, new p ac ices o esis ance also eme ged ha he sec o
migh u ilise o con inue ad ocacy o young child en’s igh o quali y ea ly
educa ion and a well- ecognised ECEC wo k o ce.
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Au ho s:
Zsuzsa Millei, Ph.D., Associa e P o esso
Uni e si y o Tampe e
Ins i u e o Ad anced Social Resea ch & Facul y o Educa ion
Kansle in inne 1
Tampe e
FI-33014 Finland
Email: [email p o ec ed]
B ad Gobby, Ph.D., Lec u e
Facul y o Humani ies
School o Educa ion
Ken S ee , Ben ley, Pe h
Wes e n Aus alia,6102
Aus alia
Email: [email p o ec ed]
Jannelle Gallaghe , MECE
Ku i Ku i P eschool and Kinde ga en
Cn Ta o Rd & Bounda y S
Spion Kop NSW 2327
Aus alia
Email: [email p o ec ed]
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