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DOCUMENT REBORE ED 121 472 PS 008 541 AUTHOR Forgione, Pascal D., Jr.; And Others TITLE ThG Rationales for Early Childhood Education Policy Making: A Comparative Case Study Analysis. INSTITUTION Hewitt Research Center, Berrien Springs, Mich. SPONS AGENCY Office of Economic Opportunity, Washington, D.C. REPORT NO OB0-50079-G-73-02 PUB DATE Sep 75 NOTE 398p..; For related document, see ED 114 208 EDRS PRICE MF-$0.83 HC- $20.75 Plus Postage DESCRIPTORS Change Agents; Change Strategies; Comparative Analysis; *Early Childhood Education; Educational Legislation; Educationally Disadvantaged; Federal Legislation; *Government Role; Handicapped Children; *Kindergarten; *Policy Formation; Preschool Programs; Research Methodology; School Funds; Social Welfare; State Legislation:, *State Surveys ABSTRACT This report describes early childhood education policy making and legislation in several states and discusses research methodology for comparative case study research. The first part of the study proviaes a historical account of the emergence of the national compulsory attendance movement in the 19th century, and the corresponding growth of early childhood education. In the second part of the report, extensive case studies of five states (West Virginia, California, New Mexico, Ohio, and Georgia) that initiated kindergarten legislation between 1971 and 1973 are presented. Considered in each state case study are such issues as: (1) rationales that state policy makers have used to support early childhood education policy initiatives, (2) background of the reform, (3) response to proposed legislation,(4) development of the change, (5) opposition to the reform, and (6) legislative leadership necessary to effect the change. Social, political, fiscal, and research rationales of the reform legislation are discussed and compared. In the third section of the document, research methodology and survey techniques, materials, and results are discussed in great detail. The final chapter contains a selected bibliography. (Author/BRT) sesses********************sesses*****ssesse**************************** Documents acquired by ERIC incldde many informal unpublished * materials not available from other sources. ERIC makes every effort * * to obtain the best copy available. Nevertheless, items of marginal * * reproducibility are often encountered and this affects the quality * * of the microfiche and hardcopy reproductions ERIC makes available * * via the ERIC Document Reproduction Service (EDRS). EDRS is not * responsible for the quality of the original document. Reproductions * * supplied by EDRS are the best that can be made from the original. * *********************************************************************** LI S. DEPARTMENT OF HEALTH, EDUCATIONS WELFARE NATIONAL INSTITUTE OF EDUCATION THIS OCCUMENT HAS BEEN REPRO OUCED EXACTLY AS RECEIVED FROM THE PERSON OR ORGANIZATION ORIGIN ATING IT POINTS OF VIEW OR OPINIONS STATED DO NOT NECESSARILY REPRE SEN T OFFICIAL NATIONAL INSTITUTE OF EOUCATION I.OS/TION OR POLICY /1" THE RATIONALES P0k EARLY CHILDHOOD EDUCATION POLICY MAKING A Comparative Case Study Analysis Prepared for U.S. Community Services Administration, H.E.W. (formerly U.S. Office of Economic Opportunity) Under Research Grant No. 50079-G-73/02 by Pascal D. Forgione, Jr. Principal Investigator Stanford University with contributions by- Michael Berkowitz Rudolph S. Marshall, Jr. 0 1975, Hewitt ReseatchCenter Berrien Springs, Michigan49104 September, 1975 11 REPRODUCE THIS COPY. HAS BEEN GRANTED BY TO ERIC AND ORGANIZATIONS OPERATING UNDER AGREEMENTS WITH THE NATIONAL IN- STITUTE OF EOUCATION. FURTHER REPRO- OUGSON OUTSIDE THE ERIC SYSTEM RE. QUIRES PERMISSION OF THE COPYRIGHT 2 GINNER" TABLE OF CONTENTS* Abstract i Preface ii .Executive SUmmary iii Part One: Au Historical Perspective on Early Childhood Policy Making in the Late Nineteenth Century Chapter 1: The Emergence of a National. Compulsory Education Movement in the Late Nineteenth Century 2 by Michael Berkowitz Chapter 2: The California Kindergarten Story 16 by Michael Berkowitz, with contribution by: Pascal D. Forgione, Jr. Part Two: _Five Case Studf.es of Contemporary Early Childhood Rducation,Legislation Chapter 3: Introduction 34 Chapter 4: West Virginia Case Study 45 Chapter 5: California Case Study 90 Chapter 6: New Mexico Case Study 144 by Rudolph S. Marshall, Jr. Chapter 7: Ohio Case Study 198 by Rudo" S. Marshall, Jr. Chapter 8: Georgia Case Study '217 Chapter 9: Comparative Case Study Analysis 276 Part Three: Comparative Case Study Research Design Chapter 10: Research Surveys of Early Childhood Education Policy Activity Between 1970-1973 Legislative Sessions 293 . - Chapter 11:Research,Methodology:, Criteria of Selection, ClassificaT tion of Legislation, Selection Process and Case Study Methodology 324 Chapter 12: Selected Bibliography 361 *All components not designated by specific authorship were prepared by the principal author, Pascal D. Forgione, Jr. Profiles of project tesearchers are provided on page 336. 3 ABSTRACT Forgionc, Pascal D., Jr. The Rationales for Early Childhood Education Policy Making: A Comparative Case Study Analysis.Berrien Springs, Ml: The Hewitt Research Center, 1975. During the 1960's national attention was focused on early childhood education both academically, with scholarspresenting evidence to support early intervention, and politically, with enactment of federal programs such as Project Head Start (1965).In the 1970's, early childhood education has come to the fore as a major social policy issue at the state level. An ECE legislative idea, from the time it is conceived until it becomes a law, goes through an intensely political process that emphasizes the importance of individual political actors and unanticipated developments as opposed to organizedmovements and empirical rationales. The first part of this study is an historical account of the emergence of the national compulsory attendance mpvenent in the 19th century and the corresponding blossoming of ECE. The establishment of s;. ,e-supported kindergartens in California, discussed in the second chapter, was typical of the rise .of infant education throughout the country at the turn of the century. In the second nark five states that initiated kindergarten legislation between 1971 and 1973 are investigated, in order to illuminate the rationales and describe how ECE pOlicy is made. Each case study was developed around several basicresearch qtestions. This careful structuring provided greater comparability among cases, empharizing the rationales behind specific legislative activity. In West Virginia, federal policy interests and fiscal incentives, combined with favorable state political and fiscal conditions, prompted legislation in 1971 to provide public kinder- gartens for all five-year-olds.The emergence of a supportive legislative leader and the determination of a politically sophisticated governor forced a largely reluctant legislature to ratify the ECE reform. In California, ECE's ultimate success as a policy issue was directly attributable to the efforts of the new state school superintendent. California already mandated kindergarten. The 1972 legislation outlined an expanded program for children through the third grade. A decision was postponed on voluntary programs for four-year-olds until 1975, due to fiscal and social objections. New Mexico's preschool legislation (1972) mandated statewide kindergarten, but targeted appropriations for the phese=in period to needy pupils. The strongest citizens group found in any of the five states pushed through this kindergarten reform. However, key actors in the Senate Appropriation Committee and in the Executive Branch limited the funding to serve disadvantaged preschool children. The statistical and fiscal impacts of mandating kindergarteofferings in Ohio (1973) were small, since almost 90 percent of first-grade students that year had attended kindergarten. The bill, an historical outgrowth of an early /969 Batelle Institute Pre-School Report, passed easily after a compulsory attendance provision was eliminated and transportation costs were resolved in previous legislative sessions. The availability of heavy mitching federal dollars in the social welfare area stimulated Georgia's activist governor in 1972 to launch a movement for preschool programs geared to handicapped children. Strong dissatisfaction by the genetal public and educators over the targeted preschool priorities resulted in efforts over four legislative sessions to expand MR into a statewide kindergarten for all five-year-olds. The specter of state fiscal problems caused the elimination of new kindergarten money in the 1975 special session. In the final chaptez of Part Two rationales are discussed and compared. Although successful legislative strategy was patterned after each state's own political and cultural character.- istics, federal influence in both policy and budget areas was pervasive. The rationales used both to support and to oppose ECE reform could be divided into four categories: social, political, fiscal and research. A single rationale could be tailored to fit the needs of either supporting or opposing groups, and they didn't always have to be logical in order to be effective. This is to be expected is the state policy making process that is essentially political. In the third'Part research nethodolgy and survey techniques are discussed. Survey material 11110 and results are reported in great detail, so that other researchers will be able to apply the systematic