Preschool Education and Care in Japan
Preschool education is called pre-primary education in the ISCED (International Standard
Classification of Education, designed by UNESCO) and classified as “level 0.” On the contrary,
primary and secondary education are classified respectively as level 1 and level 2. This means
that preschool education is counted as a preparatory stage of organized schooling. The ISCED
definition of pre-primary education is, “center- or school-based programs designed to meet the
educational and developmental needs of children at least 3 years of age, with staff adequately
trained or qualified to provide educational programs for the children.”
Here, we see not only the pre-primary level of education, but also center-based care and
education for ages zero to three. Recently, the age range for preschool education has been
redefined as “from birth to compulsory school age.” This is partly because findings of the
latest science show us that children begin to learn not from the age of three, but from or before
their birth. Furthermore, a more integrated and consistent approach for the preschool level has
become necessary because worldwide rapid social change, including increasing female labor
participation, falling fertility rates, and poverty spreading among child-rearing families, has
transformed traditional family life and how families function. Therefore, governments across
countries have already esteemed education at the preschool stage as a public good and begun to
invest more funding in related programs. To empower this trend, the OECD adopted the
concept of ECEC (Early Childhood Education and Care) from the viewpoint of lifelong
learning, UNESCO uses ECCE (Early Childhood Care and Education) in the context of EFA
(Education for All), and UNICEF uses ECD (Early Childhood Development) protecting
children.
In Japan, a very refined and holistic concept of “hoiku” (care and education) has been used for
more than 130 years. It can be said that “hoiku” is originally almost equivalent to ECCE or
ECEC, and it is strictly and carefully distinguished from “gakko kyoiku” (school education)
because early childhood developmental needs are quite different from those of school-aged
children.
1. History of Japanese Preschool Education and Care
In Japan, there are mainly two kinds of institutions involved in preschool education and care:
kindergartens (youchien) and day nurseries (hoikujo). Historically, kindergartens and day
nurseries have existed under the separate systems of the education sector and welfare sector,
respectively. And very recently, both sectors have collaborated in the authorization of a new
unified system, the centers for ECEC (nintei kodomoen).
1-(1) History of Kindergartens
The first Japanese kindergarten was established in 1876 as a kindergarten attached to the
Tokyo Women’s Normal School (present-day Ochanomizu University). It served as a model
preschool, and was well known by the adoption of “Fröbel’s Gifts” into its curriculum. At the
very beginning, kindergartens served upper-middle class families, just like in the famous image
where every morning children came up to kindergarten with their attendants riding coaches.
At the end of the 19th
century, the Ministry of Education, seeing the gradual quantitative
growth of kindergartens, issued the first “Regulation on Kindergarten Contents and Facilities”
in 1899. Later, in 1900, when the “Elementary School Order.” was proclaimed, this regulation
was integrated into the Order. According to these acts, kindergartens were established as
pre-primary educational institutes to educate children ages three and above before they entered
elementary school. They covered four subjects over the course of a five-hour school day: play,
singing songs, hearing and speaking, and handicrafts. During this period, Fröbel’s Gifts, which
had dominated the early years of Japanese kindergarten education, were incorporated into the
subject of handicrafts. Generally speaking, the education methods during this period were
teacher-oriented, like those of elementary schools.
In the first half of the 20th
century, Japanese kindergartens increased in number. There were, for
example, 5,611 pupils in 665 institutions in 1916, and 94,421 pupils in 1,066 institutions in
1926. In the 1920’s more child-centered education methods were practiced in the kindergartens,
inspired by progressive educational philosophies from America and Europe. Sozo Kurahashi
(1882-1955), a professor at Tokyo Women’s Higher Normal School, was one of the most
remarkable leaders of preschool education reform during this period. In accordance with this
reform, the Ministry of Education promulgated the “Kindergarten Order” in 1926, which was
the first independent ordinance specialized for kindergartens, and it generally specified the
contents of kindergarten education as play, singing songs, observation, hearing and speaking,
handicrafts, and so on, so that every kindergarten could decide its own educational content and
practices.
During wartime, health education and exercises were emphasized and kindergarten’s role of
improving home education was required under the “Outline of Kindergarten Education,”
issued in 1937. Under this plan, the number of more simple kindergartens was to be expanded,
and practitioners at that time requested the government to unify the kindergarten system and
the day nursery system so that it could become the national kindergarten system, but these
changes were not realized because of the wartime disasters. During this period, nationalist
education content, such as worship of the imperial family, raising the national flag, singing the
national anthem, and group training were introduced into the daily program. Near the end of
the war, kindergartens in urban areas were destroyed or closed by attacks from the air, and
kindergartens and day nurseries both became wartime daycare centers at temples, shrines,
libraries, and schools.
After World War II, the role of kindergarten education was solidified in the school education
system by the School Education Law, enacted in 1947. Article 77 of the law declared that
kindergartens should provide a suitable environment that helps young children grow and
develop their minds and bodies, and Article 80 prescribed that kindergarten was to be for
young children from the time that they were three years of age until entering elementary school.
Although kindergarten was not considered compulsory education, and enrollment was
completely up to children’s parents or guardians, it rapidly gained popularity in the 1960’s. The
enrollment rate of five-year olds increased annually, from 28.7% in 1960 to 53.7% in 1970.
The Ministry of Education announced a plan for promoting kindergarten education in 1971.
This plan entailed developing a kindergarten system that would provide kindergarten education
to all four- and five-year olds whose parents desired to make their children go to kindergarten
over the next decade. As a result of this, the average enrollment rate for five-year olds
increased nationwide to 64.4%, and the ratio of five-year olds attending either kindergartens or
day nurseries came to exceed 90%.
About the educational content and method, the Ministry of Education issued a guideline for
kindergarten curriculum and revised it several times after World War II. The first “Nursing
Guideline,” issued in 1948, was applied not only to kindergartens, but also to day nurseries and
home education, with many recommended activities, such as observation, rhythmic exercises,
rest, free play, music, storytelling, pictures, handicrafts, nature study, pretended, dramatic, or
puppet plays, healthcare, and events according to an annual calendar under the very free and
progressive atmosphere just after the war. In 1956, the first guideline was revised more
systematically, and renamed the “Guideline for Kindergarten Education (National Curriculum
Standards for Kindergartens)” in accordance with the revision of curriculum standards for
primary and secondary schools (“Course of Studies”). This time kindergarten education
content was divided into six areas: health, society, nature, language, drawing and handicrafts,
and musical rhythm. They were treated like subjects in primary schools in some kindergartens.
In the 1989 revision of standards, the areas of kindergarten education were revised into five
categories: health, human relationships, environment, language, and expression. The emphasis
was put on comprehensive education through play and every day activities. Although
educational areas were remained as they were in the 1998 revision, how they were dealt with
was changed to a method of education through one’s environment, in accordance with the
changes in society.
However, the recent falling birth rate and increasing labor participation of mothers has caused
the enrollment numbers of kindergartens to fall, saddling many private kindergartens with an
ongoing crisis. Indeed, competition among kindergartens has gotten fierce, with some adding
additional educational programming (3R’s, foreign languages, computers, etc), providing lunch,
or offering school bus services. Nowadays 88% of private kindergartens also offer daycare
service after their regular schooling.
1-(2) History of Day Nurseries
In Japan, day nurseries are the facilities that provide childcare for infants and young children
who lack it at home. It was in the 1890’s in the slums of Tokyo that the first group of day
nurseries for impoverished children were established, and the most famous one of them was
Futaba Day Nursery (at first it was called “Kindergarten”), founded by Yuki Tokunaga
(1887-1973), who used to be a kindergarten teacher and was trained at Tokyo Women’s
Normal School.
At the beginning of the 20th
century, the rise of Japanese capitalism needed a large number of
women in the work force and day nurseries were set up one after another along with the rapid
construction of manufacturing factories. In the 1920’s, the Ministry of Home Affairs promoted
establishment of day nurseries as a means of child protection within the social services
program. Under this policy, public day nurseries were set up first in Osaka, then later in Kyoto,
Kobe, Tokyo, and other urban areas. Generally, day nurseries were established for public safety,
to help poor families, and to attract female workers as a cheap source of labor.
With the outbreak of the Sino-Japanese War in 1937, social services became part of wartime
policy. In 1938, the Ministry of Health and Welfare was established and Social Work Law was
enacted. Under this Law, day nurseries were legally positioned within a child protection
activity, which was quite different from the educational purpose of kindergartens.
After World War II, day nurseries were legally regulated as child welfare institutions named
hoikujo under the jurisdiction of the Ministry of Health and Welfare, on the basis of Child
Welfare Law enacted in 1947. Article 39 of the law defined day nurseries as institutions with
the purpose of taking care of infants and young children on the basis of daily contracts with
their parents or guardians, and Article 24 clarified the responsibility of city mayors in placing
children in need of childcare in day nurseries. Afterward, in 1951, Article 39 was amended to
limit the coverage of day nurseries only to cases of “lacking childcare,” which meant that
parents or guardians could not look after children because of work, illness, etc.
About the substance and method of ECEC at day nurseries, there are both pedagogical aspects
and daycare aspects. In the prewar era, pedagogy for day nurseries was modeled after those of
kindergartens. After World War II, the areas covered in the first “Guideline for Nursery-Care at
Day Nurseries” (1965) were: life and play for infants under the age of 2; health, society, and
play for 3 year-olds; health, society, language, nature, music, and arts & crafts for 4 to 6
year-olds. The guideline was revised twice, in 1990 and 1999, changing the content to no fixed
areas for ages 0 to 3, and health, human-relationships, environment, language, and expression
for 4 to 6 year-olds.
From the 1960’s to the 1970’s, day nurseries multiplied at a remarkable rate due to increased
demand for childcare in the rapid economic growth and social change. Since that time, day
nurseries have come to play a greater role as the number of working women has increased and
the Japanese family unit has shifted toward the nuclear family model. From that time, Japanese
day nurseries have begun to provide not only regular childcare services but also extended their
services to include infant daycare, extended hour daycare, nighttime childcare, and so on.
2. Current Situation and System of Japanese Preschool Education and Care
The table below indicates Japanese kindergarten and day nursery enrollment numbers and their
rates according to the child age group.
.
Table 1: Enrollment number and rate of children in the same age group population
(2008)
facilities
age
of children
Kindergartens Day Nurseries
0 ― 47,575 ( 4.3%)
1 ― 231,316 (21.3%)
2 ― 316,459 (29.4%)
3 427,135 (40.6%) 397,696 (37.8%)
4 602,105 (55.1%) 456,750 (41.9%)
5 644,923 (57.8%) 454,245 (40.7%)
Source: Hoiku Hakusho (White Paper on ECCE, year 2008) Soudobunka, 2009;
Table of statistical data on population by Ministry of Health, Welfare, and Labor, 2008
As shown above, daycare for children under the age of one is not so popular, and the service is
mainly for working mothers who do not take the full amount of parental leave at home. The
enrollment number and rate increase as the children get older, and more than 80% of
three-year-olds, more than 90% of four-year-olds, and 98% of five-year-olds are enrolled either
in kindergartens or day nurseries in Japan.
Other than the above, there are alternative types of ECEC services with public financial aid,
such as family daycare (where a so-called “nursing mother” looks after infants at her home;
municipal budgets have been allocated since 2002), and newly authorized “centers for ECEC”
(explained below). Many parents/guardians and children under the age of three at home are
taking part in various non-formal ECEC programs that local governments or NPOs provide at
children’s centers, community centers (kominkan) or playparks.
Although most of the young children in Japan are enrolled in kindergartens or day nurseries,
the location of each institution has not been necessarily suitable for the actual demographic
situation of the children and their families. As in some areas kindergartens are playing the role
of day nurseries, and in other areas day nurseries are functioning as kindergartens, substantial
differences between the institutions have gradually diminished year by year. For this reason,
unified or integrated facilities which can play both the roles of day nurseries and kindergartens
have been put into practice locally. The new system of the “ECEC Centers (nintei kodomoen)”
has been authorized by the central governments since 2006. Table 2 indicates differences
among these three types of institutions and their statistical situation.
.
Table 2. Differences among the Three Types of ECEC Institutions
Kindergartens Day Nurseries ECEC Centers
1.Governing
Authority
Ministry of Education,
Culture, Sports, Science and
Technology (MEXT)
Ministry of Health, Welfare,
and Labor (MHWL)
MEXT and MHWL
2.Legal
Foundation
School Education Law
Article 77 →
Article 22 (2007)
Child Welfare Law
Article 39
Law for the Centre for Early
Childhood Education and Care,
and regulations issued by local
governments
3. Target From ages 3 to 5 From ages 0 to 5, lacking
childcare at home
From ages 0 to 5, regardless of
parents’ labor participation
4.Enrollment
Requirements
and Procedures
When parents/guardians
decide, directly apply to a
kindergarten
Municipalities determine the
enrollment of children. Parents
/guardians select a day nursery
and apply to the municipality
Parents directly apply to ECEC
center. Municipalities look into
the applicants, and determine
which case is lacking in
childcare
5.Childcare and
Education Time
4 hours a day (standard
service). Since 1997, “extra
childcare service” has been
possible.
8 hours a day (standard
service). Longer childcare
service within 11 hours has
become possible by way of a
municipal notice.
According to children’s family
situation, 4 hours a day, or 8
hours a day (in standard case).
6. Standards for
Content and
Method
“National Curriculum
Standards for Kindergartens
(Guidelines for Kindergarten
Education)”
“Guidelines for Nursery Care
at Day Nurseries”
Both “National Curriculum
Standard for Kindergartens”
and “Guidelines for Nursery
Care at Day Nurseries”
7.Qualification
for Teachers
Kindergarten teacher license
on the basis of the
Educational Personnel
Nursery teacher qualifications
on the basis of the Child
Welfare Law and Regulations
0 to 2 year-olds: nursery teacher
qualifications; 3 to 5 year-olds:
those who have both a
Certification Law: for its Enforcement kindergarten teacher license and
nursery teacher qualifications
(desirable), holders of one or the
other (possible).
8.Pupil-Teacher
Ratio
35 (max.) :1
At least one teacher assigned
exclusively to each class
Newborns 3:1
1-2 year-olds 6:1
3 year-olds 20:1
4-5 year-olds 30:1
Newborns 3:1
1-2 year-olds 6:1
3-5 year-olds: according to its
type (unified type, kindergarten
type, day nursery type, and
locally discretionary type )
9. Statistical
Situation
Number of enrolled children :
1,674,163
Public: 19.4％
Private: 80.6％
Number of institutions:
13,626
Public: 39.3 %
Private: 60.7%
Number of enrolled children:
2,118,352
Public: 46.3％
Private: 53.7％
Number of institutions:
22,848
Public: 47.8%
Private: 52.2%
Number of enrolled children:
No data
Number of institutions:
229 (2008) → 762 (2011)
Public 24.5% → 19.6%
Private 75.5% → 81.4%
3. Characteristics of Japanese Preschool Education and Care
Japanese preschool education has been influenced more or less by foreign educational
philosophies and methods, such as the Fröbelian Method, since the latter half of the 19th
century; child-centered education from America and Europe since the 1920’s, including that of
Dewey and Montessori; nursing theory from the Soviet Union from the 1930’s to the 1950’s;
and the Reggio Emilia approach from Italy since the 1990’s. In any case, they have been
digested and adapted to conform with the Japanese climate and context, and are in the process
of changing.
About the characteristics of Japanese preschool education and care, Muto (2006) stated the
following:
(1) Emphasis is given to both intellectual development and emotional/social development.
Moreover, both types of development are understood to be closely related. The special
instruction aimed at the acquisition of literacy or numeracy is rarely seen, but such
competencies are developed through play or activities with peers on the basis of the emotional
stability of the group.
(2) Emphasis is also given to independence in basic and necessary life habits. Teachers give
instruction not only for specific activities but also during children’s playtime and in other
aspects of their lives. However, instruction is not provided in the form of order from above;
rather, suggestions and advice are given in order to foster the children’s initiative, and
materials are placed in the room so that children will naturally want to play.
(3) Teacher expertise is considered to be developed in the cycle of planning, carrying out,
recording, reflecting on, and again planning the content of instruction. Individual kindergartens
and teachers directly involved in teaching children have a great deal of discretion in what is
taught, while central government regulations are limited to setting the basic direction.
(4) The primary roles of national and local governments are to set standards for facilities,
facilitate teacher’s careers, and determine the direction of educational and care activities.
Government bodies also provide support and advice in various forms; for example, they
identify excellent practices in education and care, and they work to disseminate their essential
points.
(5) There is a close connection between the practice of early childhood education and care and
research on it. For example, more than a few researchers are doing research at sites directly
involved in education and care for young children, and many instructors at training institutions
used to be veteran teachers, who can collaborate with other colleagues whose discipline is
psychology or other sciences concerning child study.
The comment in (1) and (2) is consistent with the observation made by J. Tobin (1991).
However, Zhang Yan, who visited Japanese ECEC settings in 1996 as a researcher from China,
described the characteristics of Japanese preschool education and care as follows:
(1) Free playtime is much longer than that of Chinese ECEC institutions, and teachers tend to
play with children just like their peers, playing the hidden role of activating children’s play.
This approach is quite different from that used by Chinese ECEC teachers.
(2) Japanese ECEC does not overprotect young children, letting them wear less clothes with
the feet often bare, experience small and slight injuries, etc. On the other hand, teachers
keep contact with parents about children’s daily health, behavior, and learning, using
notebooks for two-way communication.
(3) On the playground there are slopes, small hills, some tall trees, various places where
children can play with sand, water, and small animals and plants, and where children can
enjoy trying and erring. Outdoor activities as well as indoor activities are very well
facilitated.
(4) Educational content is greatly related to seasonal events or things. Some traditional
festivals, which were transported from China a long time ago but have already vanished,
are still alive in Japanese kindergartens and day nurseries.
(5) Kindergarten pupil’s lunch boxes made by their mothers are beautiful like fine art. Many
daily personal items used in kindergarten are mothers’ handmade.
T. Yamamoto (2003) pointed out that Japanese ECEC teachers are good at understanding
children’s inner worlds; they can grasp what children want to do and put suitable materials in
their environments before they request them. Accordingly, children sometimes lack experience
fighting with adults and getting what they want through negotiation or arguments, and as a
result strong and positive characters in confronting the outside world are difficult to cultivate
in the Japanese cultural context. Yamamoto’s cultural observation is reinforced by some
research findings (Benesse, 2006). In Japan education from early childhood tends to strengthen
the hidden attitude for harmonization with others and refraining from making strong assertions
in public.
4. Social Change and Japanese Preschool Education
(1) Expanding function of supporting local child-rearing in kindergartens and day
nurseries
In the 1980’s Japanese traditional family life and its function were rapidly transformed and
weakened because of rapid social change, including increasing female labor participation.
After the so-called “1.57 birth rate shock” (the lowest birth-rate first hit in the postwar period)
in 1989, the central government took action against this situation across ministries and
launched policies for supporting child-rearing called the “Angel Plan (1994~2004)” and the
“New Angel Plan (2000~2004)”. Under these comprehensive policies, day nurseries increased
in number and existent ECEC institutions began to bear the new role of helping child-rearing
centers. They began providing advisory services and play group programs for young children
and their parents, and they also took care of children at high risk. These days many local
governments have made networks among ECEC institutions and local child consultation
offices, social education facilities, health centers, hospitals, police offices, universities, NPOs,
etc.
(2) Enhancement of further cooperation between Kindergartens and Day Nurseries,
promotion of the Centers for ECEC
Although the above actions were taken, the falling of the birth rate did not stop, and facilities
(mainly kindergartens) have been consolidated or abolished one by one. Meanwhile, demand
for daytime childcare service is increasing. The promulgation of the “Basic Law for Measures
to Cope with a Society with a Declining Birthrate” and the “Law on Advancement of Measures
to Support Raising Next-Generation Children” in 2003 meant that stronger action was taken by
the central and local government as well as society as a whole.
Since 1997, co-use of a facility by a kindergarten and a day nursery has been recommended by
the central government, but this practice was left up to local authorities under the policy of
decentralization. In 2003, the central government, MEXT, and MHWL, started cooperating for
the unification of kindergartens and day nurseries, and after three years of preparatory work,
the “Law for the Centre for Early Childhood Education and Care” was established and a new
system was started in 2006. Centers for ECEC created by the new system are still small in
number, but are to be promoted much more widely in the near future.
(3) Strengthening educational functions in every facility for children ages 3-5, and more
smooth transition from ECEC to primary school
In Japan, educational content and teaching methods differ greatly in early childhood education
and in primary school education. First grade children often have trouble coping with change
and gaps at the beginning of their school life, cannot concentrate on learning, and have
difficulty listening to instructions. It has been called the “first grader problem” in Japan, and
primary schools, day nurseries, and kindergartens need to work together to ensure consistency
in education, and need to gain a deeper understanding of teaching methods and the
performance of preschoolers and school children.
The new “Fundamental Law of Education” (2006) stipulated the importance of ECEC and
supporting parents, and the amendment of the “School Education Law” (2007) positioned
ECEC at the first stage of organized national schooling for the first time. According to these
laws, the Division of Kindergarten Education in MEXT was reorganized to be the Division of
ECE (Early Childhood Education), for the purpose of bearing the responsibility of nationwide
early childhood education from ages 3 to 5.
The new ECEC Curriculum Standards were also published after the overall coordination, at the
same time in 2008 by MEXT and MHWL respectively (“National Curriculum Standards for
Kindergartens” and “Guidelines for Nursery Care at Daycare Centers”), guaranteeing that all
preschoolers ages 3 to 5 shall enjoy the same quality of education in order to make good
foundation for lifelong learning.
(4) Multicultural trends in Japanese preschool education
The multiculturalization of Japanese society has been progressing year by year, and in the
1990’s children from families of foreign origin (children of past immigrants and newcomers
from South and North Korea, China, the Philippines, Brazil, Peru, Bangladesh, and so on)
increased in number at the ECEC settings. In 2008, the number of registered foreign residents
was 2,217,426, accounting for 1.74% of the total population. International marriages accounted
for 6.1% of the total number of marriages, or one out of sixteen pairs, in 2006. The number of
babies with one or two non-Japanese parents/parent was 35,651, which was estimated to be
3.2% of the total baby births in Japan in a year, or one out of 31 babies. In urban areas, it was an
even higher ratio; for example, it was 5.7%, or one out of 18 babies, in Tokyo.
Under this situation, how to accept these children in ECEC institutions and practice education
for multicultural understanding or education for co-existence becomes very important. A
language support system is also necessary for the parents who cannot speak Japanese. This topic
is also included in the new child-raising support system, and active research for good solutions
is required.
References
-Statistics from Ministry of Education, Culture, Sports Science and Technology; Ministry of
Health, Welfare, and Labor, 2008:
-Ochanomizu University Center for Women’s Education and Development, The History of
Japan's Preschool Education and Care, 2006.3
-Ochanomizu University Research Center for Child and Adolescent Development and
Education, Early Childhood Education Handbook, 2004
-Multicultural Child-rearing Network, Multicultural Child-rearing Research (2000), revised
2006
-Zhang Yan, Japanese ECEC from the Eyes of a Chinese Researcher, Research Bulletin of
ECEC vol.16, Institute for ECEC Research, 1998, (translated into Japanese)
-Toshiya Yamamoto, What can be seen as “development as culture” trough the comparison
between Japan and China, (a lecture given in Japanese), Report of East Asia Child Science
Exchange Program 2007-2008, Child Research Net, 2008
-Joseph J. Tobin, David Y.H. Wu, Dana H. Davidson, Preschool in Three Cultures: Japan,
China, and the United States, Yale University Press, 1991
-The Nationwide Network of ECCE-Related Bodies, A Hoiku White Paper (2009), Hitonaru
Shobo, 2009, (in Japanese)
- OECD, Starting Strong II Early Childhood Education and Care, 2006
-Early Childhood Education Association of Japan, Early Childhood Education and Care in
Japan, Child Honsha, 1979
＜Mariko Ichimi ABUMIYA＞
日本の就学前教育（記述の要点）
就学前教育は、ユネスコの国際教育標準分類（ISCED）のレベル０に位置付けられてい
ることからも明らかなように、初等教育の前段階の教育として扱われている。がその始点
を３歳とするか０歳とするかに関して今日見直しが必要となっている。それは、ひとつに
は、幼い子どもと親をめぐる社会情勢の変化、とりわけ、人口動態や家族構成の変化、女
性の社会進出、家庭・地域の教育機能の低下、貧困と格差の増大が、ゼロ歳からの適切な
子どもの発達支援を要請しているためである。また、近年の脳研究をはじめとした子ども
研究によれば、子どもは３歳からではなく、誕生からいや母胎にいるときから発達するこ
とも明らかになっている。社会の持続的発展のために、乳幼児期からこそ政府が財政投入
することの意義についての国際的な合意形成もなされている今日、ECEC（乳幼児期の教
育とケア）の発展という観点からここでは、日本の就学前教育の歴史・現状・課題を概観
する。
１．就学前教育の歴史
日本の就学前教育は、19 世紀後半の開始期より幼稚園と保育所という２つの異なった制
度のもとにあった。両者の発展をここでは、法制・普及状況・教育の方法内容・カリキュ
ラム基準といった観点から概観する。幼稚園は主として中産階級の子女の教育機関として、
保育所は母親も就労して家庭での保育者に欠ける子どものための福祉機関として発展し、
それぞれの機能を果たしてきた。両者を一元化の必要性は戦前から唱えられながらも戦後
に持ちこされ、今日ようやく幼保の一体化が制度化されつつあることが述べられる。
２．就学前教育の現状
ここでは、幼稚園・保育所と新たに登場した「認定こども園」の３者について、管轄部
門・法的根拠・対象・就園（入所）要件と手続・保育時間・内容方法の基準・教員資格・
子どもと大人の人数比・機関数と在籍児童数の統計といった観点から一覧表の形に整理す
る。また３つの就学前機関のほかにも、乳児を預かる家庭福祉員（保育ママ）制度や、ノ
ンフォーマルな子育て支援プログラムのあることが紹介される。
３．日本の就学前教育の特色
ここでは、先行研究をもとに、日本の就学前教育の特色を考察する。日本では、子ども
の知的発達のみならず社会的情緒的発達も重視され、特定の能力を育てるよりも日常生活
や遊びを通して他者との調和的共存のできる力をはぐくみ、生涯学習の基礎をつくること
が大切にされていること、ほかが述べられる。
４．社会の変化と日本の就学前教育
ここでは、以下の 4 点について述べられる。
（１） 幼稚園・保育所の地域子育て支援機能が強化されていること
（２） 幼稚園と保育所の協働が推進され、両者の機能の一体化した認定子ども園が登場し
ていること
（３） あらゆる就学前機関における教育機能が強化され（とくに幼稚園・保育所の 3-5 歳
の共通部分）、初等教育との円滑な接続がはかられていること
（４） 日本の社会の多文化状況が進みつつあり、就学前段階からの教育支援が必要なこと。