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Selected Research Project
 
Project Title A Territory-wide Study on the Impact of the Voucher Scheme on Parentsˇ¦ Choice of Early Childhood Education Services
 
Principal Investigator Dr. Yuen Wai Kwan, Gail
 
Area of Research Project
Public Policy Studies
 
Project Period
From 10/2010 To 3/2012
Objectives
  1. To identify the factors and processes pertinent to the decision making of parents as they select an early childhood education service for their child;
  2. To examine the roles of socio-economic status, cultural background, and geographical location, and how they affect choices available to parents;
  3. To analyze the ways in which parents understand and articulate their views on what constitutes an appropriate, quality service for their child and an exemplary provision in general;
  4. To investigate the extent to which the vision and aims of the voucher scheme have been achieved in the context of parentsˇ¦ choice of services; and
  5. To make recommendations on policy improvements towards affordable, quality early childhood education.
Methods Used
The study utilized a mixed-method design. It first used quantitative data to yield a broad picture of the problem under investigation, after which it introduced qualitative data to refine the results further and explain the phenomenon. To achieve the five stated objectives, the data for the proposed study were collected in four phases: (1) Phase 1, document review; (2) Phase 2, questionnaire survey; (3) Phase 3, focus groups; and (4) Phase Four, follow-up questionnaire survey.
Summary of Findings
  1. The major findings reported below concern two-parent families (initial questionnaire 1,572; follow-up questionnaire 1,360) of voucher kindergartens.  
  2. Among the three independent variables, SES contributed most significantly to the differences in parents’ choice of services and the effects of the voucher scheme.
  3. Proximity to home was central to parents’ consideration of service options. Nearly half of the parents indicated having few or very few choices. Difficulties in accessing full-day services were reported. Parents used official and unofficial sources to access service information. They considered wide-ranging factors related to the family, child, school, parental expectation and personal preference. Distinctive choice practices and patterns were found among the three SES groups.
  4. Parents referenced their children’s performance to determine the appropriateness and quality of the current service. They defined quality or exemplary provision in terms of teacher-student relationships, teacher qualities, learning environment and happy learning. Parents’ views on the current service were largely the same for both years. Low SES parents tended to indicate their current choice as less appropriate and lower in quality.
  5. Outdoor and indoor spaces, as well as tuition subsidies, school numbers and places were the most unsatisfied needs of the child and family.
  6. Parents’ evaluation in both years revealed the moderate effects of the voucher scheme. Unlike those of higher SES, low SES parents were more likely to report the scheme unable to ensure affordable, quality services. Full-day service and fee remission groups displayed similar results. Most parents supported a policy change to 15-year free education.
  7. Parents had low policy awareness and involvement in policy consultation.
  8. Regarding cultural background, the findings of mainland Chinese immigrant parents on the choice of services and policy effects were similar to those of low SES parents. Few significant results were found for ethnic minority parents owning to their vastly different backgrounds.
  9. Some significant results were found for geographical location, but they failed to show consistent patterns. The mix of housing type and thus the fairly diverse backgrounds of population in every district may contribute to these results.
  • This study has heightened the understanding of the market approach to early childhood education through examining parents’ choice of services in the market context and the effects of the voucher scheme, a demand-side policy that supports service users. The new empirical evidence reveals pertinent issues relating to affordability, availability, appropriateness and quality. The significant contributions of SES to the differences in parents’ access to affordable, quality services have brought to light the equity issue that the market approach often fails to address. They in effect mirror the structural inequalities of the larger society. The market approach tends to underfund the sector, as is the case in Hong Kong. Having substantial investment in early childhood education is crucial to tackling the above pertinent issues and establishing infrastructures to eliminate social (and cultural) exclusions that start at very young ages. It can have significant implications for encountering the prevailing poverty. This study’s key recommendation is free early childhood education, emphasizing not only resource allocation for sustainable quality development, but also systematic provision planning (referencing choice practices and patterns) and redesign of kindergarten environment to realize the education reform goals.
  • Parents’ demand for full-day services and the issue of accessibility are evident in this study. Full-day services serve the needs of low SES and working parents on the one hand, and the needs of children (e.g. social development, special needs) on the other hand. This is particularly relevant to kindergartens offering only full-day services. The longstanding policy positions on full-day services have resulted in a limited provision and the voucher scheme disadvantaging parents using such services. These positions have neglected prominent social phenomena, such as families with working mothers, changes in family structure and the diverse needs of children. This study has recommended reviewing the policy positions and ratio of full-day and half-day places in town planning, so as to make space for developing an integrated system to support young children and their families.
  • Parents’ demand for full-day services and the issue of accessibility are evident in this study. Full-day services serve the needs of low SES and working parents on the one hand, and the needs of children (e.g. social development, special needs) on the other hand. This is particularly relevant to kindergartens offering only full-day services. The longstanding policy positions on full-day services have resulted in a limited provision and the voucher scheme disadvantaging parents using such services. These positions have neglected prominent social phenomena, such as families with working mothers, changes in family structure and the diverse needs of children. This study has recommended reviewing the policy positions and ratio of full-day and half-day places in town planning, so as to make space for developing an integrated system to support young children and their families.

Dissemination of research results through multiple channels to inform and influence policy:

  • Two public seminars to share the preliminary and final results
  • Two press conferences to publicize the preliminary and final results
  • A summary of the key findings distributed to all participants of this study and all kindergartens in Hong Kong

Continuous impact on shaping the policy discourse:

  • A proposal on implementing 15-year free education was written with reference to the research results and implications of this study. The proposal was sent to the Chief Executive, Education Bureau, legislators and all kindergartens. It has formed the backbone of current advocacy work in the sector and public discussion on free kindergarten education. It also serves as a useful reference for students, teachers and others to learn and understand more about the policy issues of early childhood education.
  • Research results are shared and discussed at various occasions (e.g. seminars, forums, meetings and newspapers) as opportunities arise.
Biography of Principal Investigator
Dr. Gail Yuen joined the Hong Kong Institute of Education upon her return from the United States. She has worked in a variety of educational settings, both locally and overseas. A graduate of Teachers College, Columbia University, Dr. Yuen has built her expertise on child and family development, as well as on international educational development, specializing in early childhood education. She is particularly interested in policy and advocacy for young children. Her recently completed studies on the voucher scheme for early childhood education in Hong Kong have raised public attention on the issues concerning the new policy. As an executive committee member of the Education Policy Forum, Dr. Yuen works collaboratively with colleagues to promote the development of public discourse on pertinent policy issues. Hoping to facilitate the exchange of alternative perspectives on early childhood education and care among colleagues from around the world and Hong Kong, Dr. Yuen, as co-chair of the host committee, successfully organized the 15th International Reconceptualizing Early Childhood Education Conference at the Institute in 2007, the first time the conference had been held in Asia. Dr. Yuen now serves on the Editorial Advisory Board of the Early Childhood Series of Teacher College Press.
Selected Publications Related to the Study

Yuen, G. (2015). Markets, choice of kindergarten, mothersˇ¦ care responsibilities and the voucher scheme in Hong Kong. Children and Youth Services Review, 48, 167ˇV176.

Yuen, G., Lam, M. S., & Choi, B. (2012). Report on the key findings of a territory-study on the impact of the voucher scheme on parent choice of early childhood education services. Hong Kong: Hong Kong Institute of Education.

Funding Source
Public Policy Research