The evolution and implementation of the pre-primary education voucher scheme in Hong Kong

Abstract

Almost all 3- to 6-year-olds attend preschool programmes in Hong Kong, yet until recently early childhood education (ECE) was excluded from the boundaries of formal government policy and the sector received minimal financial support from the government. The eventual introduction in 2007 of the Pre-primary Education Voucher Scheme (PEVS) — a HK$2 billion government package to subsidise ECE, instead of bringing the early childhood predicament to an end, generated considerable controversy due to its unique nature. Unlike other education voucher programmes, which promote and rely on the “free” market to regulate the quality of education provision, the PEVS limits the vouchers to a restricted sector of the ECE market and ties financial assistance with official quality assessments. Against this background, the purpose of this study was to examine the evolution and the continuous development of this atypical education voucher scheme in the policy context of Hong Kong. The PEVS is conceptualised as both product and process, constantly shaped and reshaped by policymakers as well as parents and ECE providers. To adequately capture the evolving and emergent nature of the policy process and reflect the divergent voices of these stakeholders, a mixed-method approach was employed, and a historical approach is used to analyse and discuss the findings. Focusing on the context of policy text production, in the first two time periods, namely Pre-voucher (Pre-2006) and Announcement and Amendments (2006 – 2009), the rationale for the development and the modifications of the policy text was explored through documentary analyses. In the following time period, After Amendments (2009 – 2010), a survey of 628 parents, kindergarten principals, and teachers, and in-depth interviews with 16 kindergarten principals and teachers were conducted to determine the opportunities for parents and ECE providers to reform and reinterpret the policy text in different contexts of practice. In the final time period, the Official Review and Further Re-modification of the Policy Text (2010 onwards), the results obtained were compared with that of a critical analysis of the official government review of the PEVS and the resulting package of enhancement measures endorsed by the government to understand how parents and ECE providers in the context of practice might in return affect the production of the policy text. Taken together, the results illustrate a full depiction of the policy process. They also show the intertwining relationship among the government, parents, and ECE providers, as well as between the two contexts of policymaking. The illumination of these previously unexplored subjects has important theoretical and practical implications for educational change and policymaking in ECE, and lays the foundation for future research in related areas.