Downloaded from www.waitangitribunal.govt.nz M A T U A R A U T I A Downloaded from www.waitangitribunal.govt.nz Downloaded from www.waitangitribunal.govt.nz Downloaded from www.waitangitribunal.govt.nz Downloaded from www.waitangitribunal.govt.nz M a t u a R a u t i a The Report on the Kōhanga Reo Claim W A I 2 3 3 6 W A I T A N G I T R I B U N A L R E P O R T 2 0 1 3 Downloaded from www.waitangitribunal.govt.nz Downloaded from www.waitangitribunal.govt.nz Downloaded from www.waitangitribunal.govt.nz The cover illustration is by Robyn Kahukiwa and is reproduced by permission of Te Kōhanga Reo National Trust Board National Library of New Zealand Cataloguing-in-Publication Data New Zealand. Waitangi Tribunal. Matua rautia : the report on the kōhanga reo claim / Waitangi Tribunal. (Waitangi Tribunal report 2013) ISBN 978-1-86956-306-6 1. Treaty of Waitangi (1840). 2. Kōhanga reo—Government policy. 3. Children, Maori—Education (Preschool) 4. Maori language. 5. Maori (New Zealand people)—Claims. [1. Kōhanga reo 2. Ture. reo 3. Kerēme (Tiriti o Waitangi). reo 4. Kerēme (Tiriti o Waitangi) 5. Reo Māori. reo 6. Tiriti o Waitangi. reo] I. Title. II. Series: Waitangi Tribunal report. 372.2108999442—dc 23 www.waitangitribunal.govt.nz Typeset by the Waitangi Tribunal This report was previously released on the internet in 2012 in pre-publication format as Matua Rautia :The Report on the Kōhanga Reo Claim – Pre-publication This edition published 2013 by Legislation Direct, Lower Hutt, New Zealand Printed by Printlink, Lower Hutt, New Zealand 17 16 15 14 13 5 4 3 2 1 Set in Adobe Minion Pro and Cronos Pro Opticals Downloaded from www.waitangitribunal.govt.nz Downloaded from www.waitangitribunal.govt.nz CONTENTS Letter of transmittal . xv Chapter 1 : Kupu Whakataki / Introduction . 1 1 .1 Kua Tipu Rā . 2 1 .2 The claimants, the Crown, and the claim . 2 1 .2 .1 The claimants . 2 1 .2 .2 The Crown’s current relationship with kōhanga reo . 2 1 .2 .3 The claim . 3 1 .3 The application for urgency . 4 1 .3 .1 The application . 4 1 .3 .2 Delegation to presiding officer and members . 4 1 .3 .3 Hearing and mediation . 4 1 .3 .4 Decision on urgency . 5 1 .4 The Inquiry . 6 1 .4 .1 Pre-hearing matters . 6 1 .4 .2 The statement of issues . 6 1 .4 .3 The hearings . 6 1 .5 Our report . 7 Chapter 2 : He Kupu Onamata mō te Kōhanga Reo / The History of the Kōhanga Reo Movement . 13 2 .1 Revitalising te reo and the launch of the kōhanga reo movement . 13 2 .2 The establishment of the kōhanga reo movement, 1982–90 . 14 2 .2 .1 A groundswell movement . 14 2 .2 .2 State sector reforms and the transfer to the Ministry of Education . 17 2 .3 Kōhanga reo under the early childhood education regime, 1990–2002 . 19 2 .3 .1 Adjusting to ECE objectives and regulations . 19 2 . 3 . 2 Constructive engagement : Te Whāriki and Te Korowai . 21 2 .3 .3 Governance, organisation, and accountability . 21 2 .3 .4 Operational funding . 23 2 .3 .5 The property pūtea and the Discretionary Grants Scheme . 23 2 3 6. Licensing . 24 2 .3 .7 Performance reviewing and the Education Review Office . 25 2 .4 The Tripartite Agreement and the marginalisation of kōhanga reo, 2002–10 . 25 2 .4 .1 ECE expansion, kōhanga reo decline . 25 2 4 .2 . Government ECE policy and strategy . 26 2 .4 .3 The Tripartite Relationship Agreement . 31 v Downloaded from www.waitangitribunal.govt.nz Downloaded from www.waitangitribunal.govt.nz Downloaded from www.waitangitribunal.govt.nz Contents Chapter 2 : He Kupu Onamata mō te Kōhanga Reo—continued 2 .4 The Tripartite Agreement and the marginalisation of kōhanga reo—continued 2 .4 .4 Financial resources . 32 (1) Incentivising teacher-led services . 32 (2) Other sources of funding . 33 (3) Funding for the Trust . 33 (4) Capital funding . 34 2 .4 .5 Regulatory compliance and reviewing . 35 (1) A revised statutory framework . 35 (2) Promulgating Te Whāriki . 35 (3) The regulatory regime . 35 (4) The Education Review Office and compliance reviewing . 36 2 .4 .6 Tohu Whakapakari and teacher registration . 38 2 .5 Kōhanga reo, te reo Māori, and Māori educational success . 38 2 .6 A breakdown in relationships . 40 Chapter 3 : Ngā Mātāpono, ngā Mātātika, ngā Here o te Tiriti o Waitangi / Treaty Principles, Rights, and Obligations . 55 3 .1 Treaty analysis : relevant principles . 56 3 .1 .1 The claimants’ submissions . 56 3 .1 .2 The Crown’s submissions . 57 3 .2 Tribunal analysis and findings . 59 3 .2 .1 Recognition of te reo Māori as a taonga . 59 3 .2 .2 The Privy Council and te reo Māori . 61 3 .2 .3 The Wai 262 report . 62 3 .2 .4 Relevant principles to this claim . 64 (1) Partnership . 64 (2) Kāwanatanga . 65 (3) Rangatiratanga and kaitiakitanga . 66 3 .2 .5 Extent of the Crown’s obligation to protect te reo in ECE . 67 3 .2 .6 The principles of equity and options . 67 3 3 . Conclusion . 68 Chapter 4 : Kia Tāwharautia Te Reo / Protecting Te Reo Māori . 73 4 .1 immersion Education and Language Survival . 73 4 .1 .1 Growth in te reo Māori ECE services . 73 4 .1 .2 Effective services for te reo transmission . 75 4 .1 .3 Level of immersion required . 75 4 .1 .4 Length of time in bilingual/immersion programmes . 75 4 .1 .5 Childhood bilingualism and educational gain . 76 4 .1 .6 Points of agreement and disagreement between the experts . 80 vi Downloaded from www.waitangitribunal.govt.nz Downloaded from www.waitangitribunal.govt.nz Contents 4 .2 The role and significance of kōhanga reo in enabling transmission of te reo . 82 4 .2 .1 The transmission of te reo me ngā tikanga Māori through kōhanga reo . 83 4 .2 .2 Kōhanga reo and tracking Māori educational success . 83 4 .3 Māori language strategy . 86 4 .4 Māori language in education strategy . 88 4 .5 Crown policies concerning Māori in ECE . 88 4 .5 .1 Ngā Huarahi Arataki – the Crown’s 10-year plan . 89 4 .5 .2 ECE provision for Māori in 10-year strategic plan . 89 4 .5 .3 Māori and educational success 2008–12 . 90 4 .5 .4 General Ministry Māori language provision . 92 4 .6 Tribunal analysis and findings . 92 4 7 . Conclusion . 94 Chapter 5 : Ngā Hononga ki te Taha Auraki / Māori Participation in Early Childhood Education . 99 5 .1 The claimants’ position . 99 5 .2 The Crown’s position . 100 5 .3 The Crown’s ECE Māori participation policies . 100 5 .4 Tribunal analysis and findings . 100 5 .4 .1 Participation and kōhanga reo enrolments . 101 5 .4 .2 Reasons for the changes in enrolment rates in kōhanga reo . 101 5 .4 .3 Information on the benefits of te reo immersion education inECE . 103 5 4 .4 . Conclusion . 107 Chapter 6 : Te Whanaungatanga o te Karauna me te Kōhanga Reo / The Relationship Between the Crown and the Kōhanga Reo Movement . 111 6 .1 The claimants’ position . 111 6 .2 The Crown’s position . 113 6 .3 Tribunal analysis and findings . 113 6 .3 .1 Partnership in action before 2003 . 114 6 .3 .2 Partnership after 2003 . 115 6 .3 .3 Partnership in practice . 116 (1) Relationship with the Crown – shared outcomes . 116 (2) Relationship with the Crown, 2002–12 . .117 (3) Crown and Trust relationships with iwi and hapū . 118 (4) Funding of kōhanga reo as an ECE service . 119 (5) Translating the kaupapa of kōhanga reo for the Crown . 119 (6) The functioning of the Working Group . 121 (a) Delegation and supervision : . 122 (b) Lack of engagement by senior management . 122 vii Downloaded from www.waitangitribunal.govt.nz Downloaded from www.waitangitribunal.govt.nz Contents Chapter 6 : Te Whanaungatanga o te Karauna me te Kōhanga Reo— continued 6 .3 Tribunal analysis and findings—continued 6 .3 .3 Partnership in practice—continued (6) The functioning of the Working Group—continued (c) Preservation versus participation . 123 (7) Partnership in practice – regulatory review, 2006–09 . 123 (a) Regulations . 123 (b) Licensing criteria . 123 (c) The ECE curriculum framework . 124 6 .3 .4 Reviewing the partnership . 125 (1) The ECE Taskforce – the final straw . 126 (2) The Taskforce secretariat and Ministry of Education support . 126 (3) The ECE Taskforce Report.