Developing Policy in Support of Early Childhood Development Judith L. Evans Presentation at Policy Review Workshop February 6-8, 2007 UNICEF/UNESCO, Bangkok

Why should we be concerned with policy development? Policies provide the framework for taking action. Policies help ensure sustainability of appropriate actions. Policies can strengthen Early Childhood's contribution to national development. Policies can become barriers. Policies provide the framework for taking action. Policies help ensure sustainability of appropriate actions. Policies can strengthen Early Childhood's contribution to national development. If policies do not support what we want to achieve, they can become barriers to our goals and objectives.

STEPS IN DEVELOPING A POLICY AGENDA 1. Initiating the Process 2. Situation Analysis/Policy analysis 3. Developing Appropriate Policy 4. Moving From Recommendations to Policy and Action 5. Implementation and Enforcement 6. Monitoring and Evaluation

1. Initiating the Process a. Determine who is to be involved in the process and in what capacity b. Identify and secure commitment of a lead agency

a. Determine who is to be involved in the process and in what capacity

Who is involved in making policy? ECD Policy UN Agencies NGOs Govt. Training Inst. Int. convention Funders

Engage stakeholders at all levels Within government Engage variety of ministries Other stakeholders include The community NGOs, private sector, religious groups media, other civil society actors Professionals, practitioners. Rights-holders who are most likely to be affected by the policies. As noted, a government ministry/department generally coordinates the process because ultimate responsibility for establishing policy lies with the government. However, a much broader constituency may well be involved in developing the policy. This can include citizen groups, non-governmental agencies, and the private sector. When a broad-based constituency is involved in the process of creating the policy, and includes representatives of all the people who will ultimately be affected by the policy, it is much more likely to be accepted, embraced and implemented. Within government Early Childhood deals with the whole child in its family and community context. Policymakers need to draw on the support and participation of diverse ministries such as Health, Social Welfare, Women and Youth Development, the Ministry of Regional and Local Governments, etc Other stakeholders include The community NGOs, private sector, religious groups media, other civil society actors Professionals, practitioners. Rights-holders who are most likely to be affected by the policies.

b. Identify and secure commitment of lead agency Choose lead agency carefully (if you can choose) - an agency that has decision-making power and resources. Outside support is often required – a role for UNICEF Somebody needs to take the lead in overseeing the process – choose carefully (if you can choose). It should be an agency that has decision-making power and resources. The Office or Ministry that begins the policy review process may receive support from an external agency – frequently UNICEF If the lead it given to a weak ministry then the process will not evolve. (The Ministry of Health is not likely to follow the lead of the Ministry of Women and Children, for example.) The Office of the Prime Minister or the Ministry of Finance are likely to be powerful lead institutions.

2. Situation Analysis/Policy analysis Assess current context Document the issues affecting the rights of young children Assess Current Policy Provisions/Gaps

a. Assess current context What is the level of political will to engage in a policy process at this point in time? Is the government supportive of ECD in ways that can be built on? What makes it possible to discuss policy now?

b. Document the issues affecting the rights of young children Demonstrate the status of women and children’s rights Determine current coverage and the ways it responds to rights and demand Identify gaps in service and why they exist Assess for overlaps, fragmentation/linkage contradictions/consistency, young child friendliness, etc. Use country and regional data to demonstrate the status of women and children’s rights Determine the coverage provided by current Early Childhood programmes, and the ways in which this responds to rights and demand Where are there gaps in service and why do these gaps exist? Assess for overlaps, fragmentation/linkage contradictions/consistency, young child friendliness, etc.

c. Assess current policy provisions/ gaps Identify existing policies/legislation addressing concerns Identify supports and resources that are available for implementation Identify costs associated with different models of Early Childhood provision and how paid Identify most productive role government in addressing gaps Identify existing policies/legislation addressing concerns What supports and resources—legislative, financial, human, organizational, and technical—are available for the creation and maintenance of Early Childhood programmes (including governmental, non-governmental, and international resources)? What are the costs associated with different models of Early Childhood provision? Who is currently paying those costs, and who will pay them in the future? What would be the most productive role for this government to take in addressing the gaps and supporting provision of quality services?

3. Developing appropriate policy Building the case for early childhood policy Articulating Policy Recommendations

a. Building the case for early childhood policy Data need to be gathered to answer the following questions: Why should we invest in ECD programmes? Given children’s rights, what is the need (under what conditions do children live; what is their physical, emotional and mental status) and what is the demand for ECD programming? Data need to be gathered to answer the following questions: Why should we invest in ECD programmes? Given children’s rights, what is the need (under what conditions do children live; what is their physical, emotional and mental status) and what is the demand for ECD programming?

b. Articulating Policy Recommendations Establish ideals - In the best of all possible worlds, what would we like to see in terms of ECD provision? Assess policy options for feasibility, potential for misunderstanding/resistance, potential effects on children, families, institutions, affordability for operationalisation, required legislative, financial, human, organizational and technical supports required. Establish ideals - In the best of all possible worlds, what would we like to see in terms of ECD provision? Assess policy options for feasibility, potential for misunderstanding/ resistance, potential effects on children, families, institutions, affordability for operationalisation, required legislative, financial, human, organizational and technical supports required.

Establish definition, goals, strategies not just for national plans but for policies. What are some short-term and long-term goals we can set in order to move toward the kind of coverage and provision we envision? Establish definition, goals, strategies not just for national plans but for policies. What are some short-term and long-term goals we can set in order to move toward the kind of coverage and provision we envision?

Developing forms of policy Overall Early Childhood policy Specific more detailed policies Policies that precede and drive decision making Policies that systematise recommendations from experience

Acceptance Process Ensure acceptance at highest levels of decision-making (i.e.. Cabinet). Examine what policies may need to be legislated.

4. Moving From Recommendations to Policy and Action Gathering data and making a set of recommendations is 1st Step 2nd Taking the recommendations through the legislative process Gathering data and making a set of recommendations are only the preliminary steps in the process. There is then the task of taking the recommendations through the legislative process. The lead government agency will have responsibility for this, and the procedures will vary from one country to another.

Anticipate roadblocks For example: Is there a significant group or organization that has not been included in the policy-formulation process who may raise opposition as recommendations are put forward? Opposition might come from political party not currently in power. In one instance the government developed its ECD policy without the inclusion of NGOs who have been involved in ECD programming in the country over the past 30 years. When the new policy was put forward the NGOs effectively blocked adoption of the policy because they had not been involved in framing it, even though, had they been involved, a similar policy might well have been drafted.

5. Implementation and Enforcement Policies need to be interpreted through National Plans of Action that include: strategies for effective implementation Procedures for management and coordination of ECD programmes Systems for monitoring Budget allocation. Having policies is not enough Policies need to be interpreted through National Plans of Action National Plans of Action should include strategies for effective implementation, monitoring, management and coordination of ECD programmes, and Budget allocation.

Implementation & Enforcement Policy needs to be operationalised via plans, programmes, projects Guidelines should be established for translating policies into action There need to be resources to support implementation A communication strategy should be developed to support implementation.

6. Monitoring and Evaluation A mechanism needs to be created the ensure implementation and to assess the consequences of policies that are being implemented. Is the desired outcome being achieved? Give example of Nigeria where a policy was put into place to ensure standards were being met in centre-based programmes. The standards were derived from those that existed in the USA and were inappropriate to the context. As a result few centers could register and the child care system went ‘underground’ and no monitoring of quality was possible. IT was only when standards were created that addressed the context that it was possible for centres to register and become a part of a larger system that helped ensure quality.

One Approach: Create an Inter-sectoral Committee to oversee process Advocate for an "inter-sectoral" committee to co-ordinate the analysis, identify gaps and needs for new policies, develop an implementation strategy, and finally monitor implementation. (Their ‘power’/ authority needs to be defined as do mechanisms for their operation.) Include Ministries of finance and planning in policy discussions right from the start.

The Committee would be responsible for: Gathering data Defining areas to be addressed through policy Drafting policies for review Overseeing the review process as the policy goes through DRAFT after DRAFT after DRAFT Organizing reviews for stakeholders Ensuring broad representation of relevant points of view Gathering data to answer the above questions Defining specifically what will addressed through the policies Drafting the policies for review Overseeing the review process as the policy goes through DRAFT after DRAFT after DRAFT Making arrangements for major review events, such as seminars and workshops Ensuring broad representation of relevant points of view In your own country, what Ministries might be involved? Who else do you think should be on the Task Force?

Remember!!!!! Policy making is a process that takes time AND requires a long-term commitment! But…. It can make a difference in the kind of supports that are provided to young children and their families!

the process of policy development is more political than technical A word of advice! Be aware that the process of policy development is more political than technical