Between 2010 and 2015, over 6,000 children in 45 rural and semi-rural communities have benefited from early education and better nutrition through Pilot Fiecare Copil in Gradinita (FCG) programs.
An award-winning initiative that has been cited as a model by both The Economist and the World Bank and endorsed by the Romanian Ministries of Education and Labor. The development of FCG was largely funded by the Romanian corporate sector and an American non-profit organization, the Alex Fund. The effectiveness of the pilot project led the Romanian Parliament to finance its parent incentive throughout Romania in 2015.
See ‘Expansion‘ section for more details.
Since it was implemented in early 2016, Romania has seen an increase in both registration and attendance of disadvantaged children in gradinita. As of January 2017, 62,000 children were registered and 38,000 were benefitting from daily attendance and food coupons.
Fiecare Copil în Grădiniță incentivizes poor parents to send their 3-5 year old children to preschool and kindergarten (gradinita). Pilot FCG targets the very poorest children – those living in overcrowded, inadequate housing in isolated areas without normal access to potable water, heating or health care. In the winter, the unemployment rate is close to 100% due to the reduced need for unskilled labor and low education level of the adults. Through FCG these families received €11/mo in food coupons if they brought their child to gradinita every day. This small amount significantly increases the amount a destitute family has for food. In Romania, the monthly child allowance (which is unconditional) was, at the time, €10, so the food coupons represented a significant increase for families surviving on their children’s allowance.
Teachers were required to take daily attendance at 9:00 and post the attendance chart on the classroom wall. OvidiuRo representatives conducted random spot checks of the attendance reports to ensure they were filled out correctly and on time–so parents developed the habit of bringing their children before 9:00 am.
FCG helps prevent school abandonment by:
(1) helping communities make early education a priority, and
(2) incentivizing the poorest parents to send their 3 to 5-year-old children to grădiniță.
Food coupons, conditional on children’s attendance in preschool, proved to be a highly effective and efficient tool to stimulate destitute, functionally illiterate parents (with an average of four years of schooling) to bring their young children to gradinita regularly.
HOW FCG WORKS:
• Local administration convenes an action group to customize the implementation plan to local needs;
• Local council allocates €35 a year per child for clothes and shoes for the children in FCG;
• Implementation team (preschool teachers, social worker, and school mediator) carry out the daily FCG program.
• Allocates €11 in food coupons per month to parents who take their children to preschool every day;
• Allocates €15 per child/year so teachers can purchase school materials of their choosing;
• Provides training to the local implementation team;
• Conducts teacher training workshops in modern teaching methods.
Why Food Coupons Are Necessary
The food coupons conditional on daily attendance are the central component of the Fiecare Copil în Grădiniţă pilot program.
All programs that advocate for early education recommend proactively enrolling children at risk, communicating with parents, and helping alleviate ‘hidden costs’ by providing clothes and school materials. But extreme poverty results in people having a very different set of daily priorities than working families have. Food coupons address the very first priority for these families: feeding everyone today!
Information and mediation are important but it is the conditional incentives that move significant numbers of poor parents to act on a daily basis – and dramatically increase poor children’s attendance. To receive the coupons, children must attend preschool every day or have an officially excused absence and parents must attend a monthly parent-teacher meeting. While €11 per month in any form is an inducement to destitute jobless parents, the payment method – food coupons (tichete sociale) – is its own positive factor. The vouchers, accepted virtually everywhere, are better than cash because they are:
- More acceptable to other members of the community as a form of social aid;
- Easier to manage distribution and track;
- Less fungible (purchase of cigarettes and alcohol are excluded);
- Directly targeted to children’s nutritional needs.
In Romania, hot meals at school are out of the question because rural kindergartens have neither the facilities for food preparation nor access to registered suppliers. Nor is cash a viable option because small rural villages do not have bank branches (and people subsisting under the poverty line rarely have bank accounts).
Are food coupons enough?
ABSOLUTELY NOT! While conditional incentives are a necessary ingredient in recruiting disadvantaged children and maintaining their regular attendance in preschool, other factors are also essential for permanent change.
Key Elements for the pilot program success:
- The involvement and continuous support of local leaders. Where the mayor, school inspector and principal fully supported the program, its impact is huge. This is not only a consequence of funding and human resource allocation. When early education becomes a community priority, creative solutions follow. The teams implementing Fiecare Copil in Gradinita pilot program demonstrated that by continually bringing early education issues to local attention, holding regular Local Action Group meetings, and circulating the initial positive results, the community starts to believe change is not only possible, but that THEY are making it. Working in FCG, the members of local and county teams better understood the problems in their communities and became more motivated to go above and beyond their standard job responsibilities – thus, they became more active and involved in the life of the community.
- Door-to-door recruitment. Ensuring that all 3- to 6-year-old children were identified required the mediator, social worker and teacher teams to knock on doors in the poorest enclaves and talk to parents about the benefits of preschool for their child often more than once. Many uneducated parents neglect enrolling their children for quite logical reasons: grădinița is not mandatory, it involves costs (like school clothes and shoes; they do not realize its important for their children’s development and, also, personal discomfort in dealing with the school authorities based on their own past experience.
- Strict attendance monitoring. Incentives only work when the rules are meticulously followed. In the beginning parents had to be helped to understand that they must bring their children to preschool every day; if the child was sick or an unexpected situation arises, they needed to bring a medical note, or announce beforehand to the teacher and sign a “scutire”(medical note). This required teachers to consistently take daily attendance, only excuse documented absences, and make no concessions or special cases. The first couple of months are always turbulent, as some parents would always want to see how far they can bend the rules. Strict interpretation in the beginning will pay off in the long run.
- Parent involvement. In the FCG Pilot program, monthly food coupons were conditional on two factors: (1) children’s daily attendance, and (2) parents participation in a monthly Parent Day activity plus five mornings spent as a teacher’s assistant. These interactions with teachers in the school environment had far-reaching consequences on impoverished parents’ comfort level with the teachers and the education system in general. They increase parents’ appreciation of the teachers and their awareness of their child’s progression in school. It also helped teachers to better understand where their students are coming from.
- Provision of school supplies and clothes and shoes for children who were living under the poverty line by the local council.
WHY IT WORKED
The crux is making early education of at-risk children a community priority”
Maria Gheorghiu, OvidiuRo cofounder
Like many of the best programs, FCG originated “bottom-up” – as a joint venture between an NGO (OvidiuRo), local authorities and neighborhood schools – to address the widespread phenomenon of early school abandonment that was rampant in many poor rural communities. The authorities knew this was a serious problem but they had neither a long-term strategy nor the resources to tackle it.
Many communities had benefited sporadically from short-term outside grants but most of these programs terminated as soon as the outside funds ran out, and therefore never lasted long enough to take root in the community or to make any measurable difference in student outcomes. Fiecare Copil in Gradinita pilot program was different from these other programs in four basic ways:
1. Significant investment from the local authorities: The local council was required to provide at least €35 per child for school clothes.
2. Long-term commitment from OvidiuRo: It was clear that OvR was there to help develop and sustain the programs, not just to check their invoices.
3. Medium-term management transition plan: In 2014, OvR introduced a process to wean well-functioning programs from management dependence on OvR, making 13 communities “autonomous” (i.e., local coordinators made all program decisions, while still providing quarterly reports to OvR) and eight communities semi-autonomous. (OvR continued to monitor and audit attendance records but local coordinators make local day-to-day decisions.)
4. Positive word of mouth: The success of the pilot programs piqued the interest of other communities and county authorities, enabling the program to grow organically in the first few years.
Program participation was based solely on family income, not ethnicity. Nonetheless, the majority of families that qualified due to extreme poverty were Roma, although most do not identify as Roma on government census forms.
From 2010 to 2015 the Fiecare Copil in Gradinita pilot program expanded from 13 to 45 communities in eleven counties. Due to its success, at the end of 2015, Romanian Parliament passed the “Fiecare Copil in Gradinita Law” (#248/2015) adopting the central mechanism of OvidiuRo’s Pilot Program.
FCG Pilot Program Timeline
|2010||OvR initiates the Fiecare Copil in Gradinita program in partnership with The Ministry of Education. Thirteen pilot communities are selected through a national application process.|
|“Școala te face mare" awareness campaign features Andreea Esca, Horea Brenciu, Margareta Paslaru & Ethan Hawke.|
|2011||OvR extends FCG to 20 communities, reaching 1300 children, and sets goal to turn FCG elements into public policy by 2020.|
|2012||OvR’s public awareness campaign "Fiecare Copil in Gradinita" stresses the importance of early education.|
|Nine Ambassadors to Romania form the 'Ambassadors’ Early Education Initiative 2012-2020'' to show their support of early education for all as a key contributor to the school success of disadvantaged children.|
|2013||FCG reaches 2100 children. OvR signs partnership with the Ministry of Education to analyze the impact of FCG.|
|2014||EEA grant fuels expansion in Brasov, Dambovita & Dolj through an EEA grant (see text below).|
|Cluj is the first county to cover the FCG food coupon incentives from its county budget. Inter-Ministerial Task Force is created to prepare the way for scaling up FCG nationally.|
|FCG reaches 2400 children in 11 counties. OvR, Ministries of Ed & Labor sign agreement paving the way for national expansion of FCG.|
|March||Law is proposed by MP Daniel Constantin, to clear the legislative framework pertaining to tichete sociale. Minister of Labor, Rovana Plumb, visits FCG program in Dâmbovița.|
|7 Oct||Parliament passes the FCG Law with full support from all major political parties. The law provides that parents living under the poverty line can receive food coupons worth €11 per month if their child attends preschool every day.|
|28 Oct||President Klaus Iohannis signs the Law and the Government allocates €12.3 million to cover the cost of food coupons for 111,000 children living in poverty.|
|December||OvR helps draft the secondary legislation for Law 248/2015.|
|Secondary Legislation is published in Monitorul Oficial.|
|February||OvR ‘s Law Information Road-show reaches 8000 public employees in all 41 counties.|
|2017||Monitoring & implementation support reaches over 250 communities.|
The 2014 European Economic Area grant from Norway, Iceland & Liechtenstein accelerated OvR’s partnerships with county councils and school inspectorates as a step toward the national scale up of Pilot FCG. The grant also added a more robust parent and teacher education component to FCG and funded an independent impact evaluation that concluded that FCG had a strong impact on attendance of poor children in preschool AND on the attendance rate after they leave preschool. With the Civil Society Development Foundation (FDSC) technical assistance and the involvement of major investors like Raiffeisen Bank, Cargill, and Carrefour Foundation, the EEA grant enabled OvR to expand the program from 6 to 13 communities in Brașov, Dâmbovița, and Dolj counties.
RESULTS of the FCG PILOT PROGRAM
What parents say
I don’t know how to read or write, but all three of my kids have been to gradinita. One day my youngest came home and wrote his name on the wall. I was speechless.”
FCG Parent, Ocolna, Amărăștii de Jos
My older girl was also in the program, and now she’s in 2nd grade. You might not believe this, but she only gets 10’s. She told me that when she grows up she’ll go to high school in Brasov. I already picture her holding the diploma.“
FCG Parent, Budila
What teachers say
‘Before FCG I’d have children in first grade who would start crying after writing one line. Adapting to primary school, without having been to preschool, is just too big a leap.”
Claudia Pop, clasa pregatitoare, Apold
It’s so simple. I’m surprised we didn’t think of this before.”
Dullo Szilard, Araci School Principal
What social workers say
Once poor parents are integrated in the educational system, they DO bring rheir children to gradinita — even if they are not eligible for the food coupons any more.” Simona Cristea, Budila social worker and program coordinator
2010-2015 cumulative results
Average attendance rate for 2014-2015 school year : 73%
Testimonies from parents and local team members in Budila, Brașov county:
PILOT PROGRAM LOCATIONS
County / Community