Britto et al. (2011: p2) maintain that, according to the 2011 UNICEF report entitled Tracking Public Expenditure and Assessing Service Quality in Early Childhood Development in South Africa (2011: p1), a great deal has been invested in early childhood development in South Africa. The focus is now placed on reflecting on the progress and growth evident in the early childhood sector, to assess the competence and impartiality of public-expenditures in the sector, as well as to assess the quality of the services rendered to children.
Grade R in the public sector ‘appears relatively well-organized; and many matters are well- institutionalized’. According to the report, the Grade R practitioners and teachers are
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relatively well-experienced, and have an adequate level of ECD training and qualifications. Grade R is largely funded by the Department of Basic Education and Pre-Grade R by the Department of Social Development. Internationally, this approach lacking ownership has proven to be problematic; and it has led to the needs of young children not being met, and therefore, providing poor service delivery resulting from a lack of co-ordination and collaboration between the governmental departments, NELDS, (2009: p11).
Broadly speaking, according to policy, the situation in South African Grade R classes reflects a moderate teacher-pupil ratio, fair training and experience of teachers, moderate planning activity and programme quality. A growing concern, however, amongst others is that not enough effort is placed on the development of young children (UNICEF, 2011: vii, 17). This raises huge issues, as the development of young children is one of great priority – the laying of foundational concepts and understanding the growth and development of children is fundamental (Zepeda, 2012: p1).
The Strategic Plan released by the Department of Education aimed to achieve, by 2014 (2007: p37-44); and this was later extended to 2018:
Together with the Provincial Departments of Education to ensure quality Early Childhood Development opportunities in poor communities
The performance measures aimed at 60% of 5-year old learners to be enrolled into Grade R classes in 2007; and 85% to be enrolled in 2010, with quality early childhood centres being implemented with a strong support programme in place. The Department of Social Development plays an imperative role in the provisioning of access to early childhood programmes (Situation Analysis of Children in South Africa, 2009: p.69).
According to the Situation Analysis of Children in South Africa (2009: p73), ‘Qualification of educators working in the ECD sector is essential for [the] provision of good quality services’. According to a Situation Analysis of Children in South Africa (2009: p68), early childhood development programmes are provided in three different areas:
1.) Registered sites with the Department of Social Development and the Department of Education;
2.) Community-based sites (traditionally not formally registered, but this has since changed, ECD Guidelines, 2013: p41);
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According to ECD Guidelines (2013: p41), there are now a range of minimum standards, which need to be met in terms of the management, infrastructure, layout, registration and implementation of ECD Centres in South Africa. With reference to the practitioners, „All practitioners must be trained and must receive on-going training in early childhood development and the management of programmes and facilities for young children‟ (ECD Guidelines, 2013: p41).
With reference to practitioner training, the goal was to have 40% of practitioners in registered early childhood sites to be trained in early childhood basics, and by 2011 to have all practitioners in ECD sites being trained with appropriate skills (2007: p39).
The aim is to ensure that the curriculum is implemented effectively, which would improve learning outcomes and results.
The goal by 2009 was to have all schools receiving support, and therefore, ensuring effective implementation of the curriculum in schools.
Another goal was to implement resources in poor schools, ensuring that effective teaching and learning could take place (2007: p39).
Improving access and the quality of education for learners with special educational needs
According to The Strategic Plan 2007 – 2011, the Department of Education‟s aim by 2007, was to authorise the resourcing of schools to incorporate Inclusive Education into the system. As many as 60% of all mainstream schools should have been resourced with the abovementioned norms and standards by 2011(2007: p40).
Attracting and ensuring appropriately qualified and competent teachers in all learning areas at all levels, with special focus on scarce skills
An audit implemented in 2000 found that only a quarter of the teachers working in the early childhood sector had received some form of training (Situation Analysis of Children in South Africa, 2009: p68). This was identified as a priority in the Department of Social Development and the Department of Education (Situation Analysis of Children in South Africa, 2009: 68). In 2007, a national bursary programme was made available for student teachers in the priority areas of South Africa. The goal was to place and capture detailed information on teacher
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shortages and priority areas across the various provinces in 2008, as well as to implement accredited teacher training programmes, which focus on the development of critical skills. In 2009, bursaries were to be awarded, according to the results from the 2008 study, hoping thereby to ensure that skills development in the specific areas would improve the teaching and learning situation.
According to Berry, Jamieson and James (2011: p21), there are specific requirements in place for staff working with children in early childhood. The regulations state that people working in these centres need to have the following training:
- „The National Certificate in Early Childhood Development at National Qualification Framework (NQF) Level 1 to 6 of the South African Qualifications Authority
- An appropriate ECD qualification; OR
- A minimum of three years’ experience implementing ECD programmes’.
According to Government Gazette no 34667 of July 15, 2011, a document entitled The Minimum Requirements for Teacher Education Qualification replaced the Norms and Standards for Educators (NSE) in February 2000. This decision may have had far-reaching consequences for Grade R practitioners, as it determines that a NQF Level 6 qualification is a minimum requirement. Many practitioners working in early childhood settings do not meet the educational requirements to be accepted into an NQF Level 6 training programme.
While all staff, whether paid or volunteer, should be screened against the National Child Protection Register (NCPR), and the Sexual Offences Register, there is also a set of norms and standards with which the staff need to comply (Berry et al., 2011: p33, www.collegesa.co.za/early-childhood-development-vs-college-sa-child-care-studies.co.za, 4/7/2013). These include:
- Staff need to have training in early childhood development and to be able to implement ECD programmes;
- Staff need to be equipped with the basic knowledge and skills to identify various illnesses and know an adequate intervention;
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According to a publication by Ilifa Labantwana (2011, p. 9), ‘municipalities are responsible for ensuring that ECD centres comply with [the] Municipal Health and Safety By-Laws’ Each municipality takes the responsibility of ensuring that the correct procedures and protocol are followed. Harrison (2013: p4) explains the current challenge with regard to registering early childhood centres with Department Social Development; the practitioners running the centres do not have the resources or finances to improve the infrastructure, and thus are unable to meet the requirements and minimum standards mandatory for registration.
The fees paid by parents are spent on providing food for the children, so teachers are receiving a small stipend – but only when this is possible. Figure 4.1 is a representation of the domino effect that Harrison (2013: p4) believes the early childhood centres in South Africa face.
Figure 4.1 The Domino effect of unattainable standards for ECD facilities in poor communities
According to Biersteker (2010: p6), „the issues of wages and service conditions for ECD practitioners of all kinds need to be addressed’. It is essential that clear and reasonable remuneration is available for practitioners working in early childhood sector, so as to attract and retain good quality practitioners (Biersteker, 2010: p6).
Ensuring effective professional leadership at school and district levels of the system.
In 2007, research was done to ensure adequate support for formal primary schools was made available. In 2008, all the provinces were to allocate adequate resourcing within the education
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districts, ensuring that by 2010, 70% of all primary school education districts would be able to function effectively and appropriately (2007: p40-41).