The Historical Roots of Governance Deficits in Israeli Early Childhood Education and Care Services

Abstract

Israel is characterized by weak governability and low-quality early childhood education and care (ECEC; birth to three years) services. This policy is characterized by four dimensional deficits: deficit in provision of services, deficit in legislation, deficit in quality, and deficit in funding.This paper probes the sources of the regulatory deficit and low public investment in ECEC services in Israel. I use historical institutionalism analysis along with bureaucratic politics theory to explore Israel's weak regulatory governance from the 1920 s to the 1980 s. The bureaucratic politics approach furnishes a good view of the role of bureaucrats and the bureaucratic power struggle in policy formation. The analysis indicates three tensions that have shaped ECEC policy: (1) support for working mothers versus disadvantaged children and families; (2) accessibility of services versus quality of services; and (3) form of provision (i.e., ECEC as a private service versus ECEC as a public service).Historical analysis shows that the ambiguity and duality that characterize ECEC policy regarding these issues has led to indecisive and inconsistent policies, weak regulatory governance, and poor public services. The conflict among ministerial offices has also contributed to the gradual change in policy. The study underscores the contribution of historical analysis to understanding policy trends and for designing future reform.