Layering and institutional change: framework plan revision in Norwegian early childhood education and care

Central among a range of reforms and policy measures aimed at enhancing the quality and social cohesion of Norwegian early childhood education and care (ECEC) services is the 2017 Framework Plan for Kindergartens. In this article, we investigate the policy formation process and how framework plan reform has been carried out by public and private stakeholders at different levels. The reform is explored as institutional layering, referring to theoretical contributions that stress the role of incremental development and gradual institutional change. We ask: What are the policies added, and to what extent do added policies instigate institutional change? This article relies on qualitative document analyses, semistructured interviews, and quantitative survey data. We find high legitimacy for the framework plan in the ECEC sector, and informants broadly regard it as a continuation of earlier versions of the plan. Our analysis further shows that the implementation of the 2017 framework plan reform cannot be viewed in isolation, as it interacts with other reforms, trends, and instruments in the sector. We argue that blending reform design features with existing values and practices adds layers to Norwegian ECEC, instigating change. The analysis points to the need for further research on how national educational reforms are implemented in complex settings and to investigate the relationships between policy design and measures and between policy outcomes and ambitions. The relationships between different measures can be unclear to local implementers. Thus, we stress the importance of considering how reform outcomes depend on intertwined reforms and varying local conditions regarding capacity, norms, and values.