The Australian and state and territory governments are committed to the development of a national Early Years Learning Framework, and a process of consultation with the early childhood sector about the nature and content of the Framework is currently being undertaken. This Policy Brief is designed to provide policy makers and practitioners with an orientation to the general issues to be considered in the development of an Early Years Learning Framework.

For the purposes of this Policy Brief, an early years curriculum or learning framework is defined as a set of principles and practices to guide those working with young children in children’s services (the focus is on early childhood settings rather than health or home-based services, important as those are). It is to be distinguished from a full curriculum statement (which might specify the content to be covered and/or the care and teaching processes to be used), and from early learning standards or benchmarks (that specify what young children should know and be able to do)

Centre for Community Child Health

English

Analysis and Policy Observatory (APO)

 No 12 2008 
 
Initiative of:       Supported by:   
 
 
POLICY BRIEF 
Translating early childhood research evidence to inform policy and practice 
Towards an Early Years Learning 
Framework 
The Australian and state and territory governments are committed to the development of a national 
Early Years Learning Framework, and a process of consultation with the early childhood sector about 
the nature and content of the Framework is currently being undertaken. This Policy Brief is designed to 
provide policy makers and practitioners with an orientation to the general issues to be considered in the 
development of an Early Years Learning Framework. 
For the purposes of this Policy Brief, an early years curriculum or learning framework is defined as a set 
of principles and practices to guide those working with young children in children’s services (the focus is 
on early childhood settings rather than health or home-based services, important as those are). It is to 
be distinguished from a full curriculum statement (which might specify the content to be covered and/or 
the care and teaching processes to be used), and from early learning standards or benchmarks (that 
specify what young children should know and be able to do). 
Why is this issue important? 
By the time children reach school, there are 
striking disparities in their functioning across all 
developmental domains (Centre for Community 
Child Health [CCCH] & Telethon Institute for 
Child Health Research, 2007). These initial 
differences are predictive of later academic and 
occupational success (Dockett & Perry, 2001, 
2007; Le et al, 2006). The provision of high-
quality early childhood services can contribute 
greatly to reducing these gaps, thereby 
contributing to more positive long-term outcomes 
(Boethel, 2004; Sylva et al, 2004).  
One of the key features of high quality early 
learning and care programs is that there are 
planned goals for children’s learning and 
development (Best Start Expert Panel on Early 
Learning, 2006; Organisation for Economic 
Cooperation and Development [OECD], 2001, 
2006; Sylva et al, 2004). Research has 
consistently shown the importance of being clear 
about the purpose, goals and approaches in 
establishing the what (content) and the how 
(pedagogy or educational strategies) in early 
learning and child care programs (Bertrand, 
2007). The use of such learning frameworks in 
the context of nurturing and emotionally 
supportive relationships and settings has a 
positive impact on children’s long-term 
development and learning (Klein & Knitzer, 2006; 
Schweinhart, 2008).  
The idea of a curriculum is contentious within the 
early childhood sector (Elliott, 2006). The term 
curriculum tends to be equated with syllabus and 
the notion of a prescriptive, subject-bound set of 
experiences to be applied uniformly in all 
settings. However, an early years learning 
framework that defines broad developmental 
intentions and expectations, outlines program 
directions, and foreshadows developmental 
outcomes and how they will be monitored can 
contribute significantly to ongoing learning 
success (Elliott, 2006). 
As all three levels of government are involved in 
the provision of early childhood services, and 
because policy responsibility is shared between 
different departments in many states, there is a 
patchwork of provision that means many children 
miss out on quality early education programs 
(Elliott, 2006; Press, 2006, 2008; Walker, 2004). 
Moreover, there is no national learning 
framework for the early years in Australia. This 
has led to significant differences in the content 
and organisation of curriculum for the early years 
across the country, particularly in the coverage of 
the age period birth to three years. There is an 
urgent need for more consistent and coherent 
policies across early childhood sectors and 
greater cohesiveness and integration within and 
between services in order to achieve better 
quality programs and better outcomes for 
children (Elliott, 2006; Press, 2008; Work & 
Family Policy Roundtable, 2006). 
What does the research tell us? 
An early learning framework should be based on 
an evidence-informed understanding of how 
children develop and learn and what conditions 
and experiences they need to do this well. 
Policy Brief No 12 2008: Towards an Early Years Learning Framework 2 
www.rch.org.au/ccch/policybriefs.cfm 
 
 
 
 
 
 
 
  
The framework should also be based on what the 
role of early childhood services should be. While 
there is much research to help us address the 
first two of these, determining the third involves 
debates about social values and understandings.  
How children develop and learn. There are 
several key features of children’s development 
and learning that are particularly pertinent for the 
development of an early learning framework. We 
know that children develop and learn through 
their relationships with others, and actively 
participate in reciprocal to-and-fro exchanges 
with parents and caregivers from birth (Gerhardt, 
2004; Richter, 2004; Siegel, 1999, 2001). As they 
grow, they are increasingly able to be 
meaningfully engaged as partners by those who 
care for and work with them (Lancaster, 2006; 
Lansdown, 2005). We also know that children’s 
early childhood experiences are crucial for their 
later development, and that many fundamental 
aspects of development are established well 
before a child enters school (National Scientific 
Council on the Developing Child, 2008). 
We know that learning starts from birth, rather 
than beginning only in the preschool and school 
years (Lally, 2007; Meisels, 2006; Shonkoff & 
Phillips, 2000), and that this learning is 
cumulative, with later skills and learning building 
upon what has been learned earlier (Cunha et al, 
2006). The continuity of children’s experiences – 
between home, early childhood setting and 
school – is critical for such cumulative learning 
(Bertram & Pascal, 2002). Learning involves 
many aspects of children’s functioning (such as 
emotional development, self-regulation, and 
problem-solving skills), not just cognitive 
processes (Boyd et al, 2005; Cunha & Heckman, 
2006; Galinsky, 2006).  
The conditions for learning and experiences of 
children that are most relevant to the 
development of an early learning framework are 
derived from general findings about early 
childhood services and specific findings about 
principles of effective service delivery.  
General findings about early childhood 
services. Children, particularly those from 
disadvantaged backgrounds, benefit from 
attendance at high-quality early childhood 
services, both in the short- and long-term 
(Anderson et al, 2003; Gormley, 2007; Howes et 
al, 2006). Children also benefit when core early 
childhood services are provided on a universal 
rather than a targeted basis, as this achieves 
greater coverage and better quality outcomes 
(Barnett et al, 2004; CCCH, Policy Brief 2, 2006; 
Doherty, 2007). However, targeting can be 
appropriate as a secondary strategy for children  
in need of special support, or from aboriginal, 
ethnic or low-income backgrounds. Services that 
benefit children most recognise that child care 
and education functions are inseparable, and 
embed these in all aspects of service delivery 
(Brauner et al, 2004; CCCH, Policy Brief 8, 2007; 
Friendly, 2008). This is especially important for 
infants and toddlers (Lally, 2007).  
Specific findings about principles of effective 
service delivery. Features of effective service 
delivery include both interpersonal and structural 
features.  
Key interpersonal features. Responsive and 
caring adult-child relationships are critical for 
effective service delivery (Lloyd-Jones, 2002; 
Melhuish, 2003; Moore, 2006). These 
relationships need to be consistent and secure, 
so staff continuity is important, especially for very 
young children (David, 2003; Elliott, 2006). 
Parents and families are recognised as having 
the primary role in rearing children and are 
actively engaged by early childhood services 
(Bennett, 2007; David, 2003; Mitchell et al, 
2008).  
 
 
 
 
An individualised and developmentally 
appropriate approach is used, where staff 
observe and monitor children’s performance to 
ensure they are provided with challenging yet 
achievable experiences (Fleer & Richardson, 
2004; Kagan & Kauerz, 2006; Siraj-Blatchford et 
al, 2002). Staff also build upon children’s 
interests, previous learning experiences and 
strengths and model appropriate language, 
values and practices (BERA Early Years Special 
Interest Group, 2003; Siraj-Blatchford at al, 
2002). An individualised approach implies that 
children who are vulnerable and are experiencing 
difficulties with the social and emotional 
demands of early childhood settings should 
receive extra support to help them participate 
meaningfully in all activities (Best Start Expert 
Panel on Early Learning, 2006; Department of 
Children, Schools and Families, 2008). 
Play-based approaches are used whereby 
caregivers seek to create exciting places and 
opportunities for young children to safely explore, 
experiment and practice new skills (Bodrova & 
Leong, 2003; Stonehouse, 1999, Walker, 2007). 
Children are actively engaged at all times (Klein 
& Knitzer, 2006, 2007; McWilliam & Casey, 2007) 
and staff structure environments that promote 
children’s optimum engagement (Elliott, 2006).  
“We know that learning starts from birth, 
rather than being restricted to the 
preschool and school years… ” 
Policy Brief No 12 2008:  Towards an Early Years Learning Framework 3 
www.rch.org.au/ccch/policybriefs.cfm 
 
 
The physical setting is organised in ways that 
promote learning and daily routines are used to 
strengthen bonds and support learning 
(Farquhar, 2003; Montie et al, 2006, 2007; 
Noonan & McCormick, 2005).  
There is a balance of child-initiated and teacher-
directed approaches; children are recognised as 
capable and competent, and learning is achieved 
through a process of cognitive ‘co-construction’ 
(Farquhar, 2003; Graves, 2006; Siraj-Blatchford 
et al, 2002). There is also a balance between a 
cognitive/academic focus and a social/emotional 
focus, as long-term academic/school success is 
dependent as much on social, emotional and 
self-regulatory capacities as upon academic skills 
and knowledge (Boyd et al, 2005; Heckman et al, 
2006; Raver & Knitzer, 2002). The way the latter 
are ‘taught’ is also crucial: children’s learning can 
be slowed by overly academic preschool 
experiences that introduce formalised learning 
experiences too early (David, 2003; Marcon, 
1999, 2002).  
Respect for diversity, equity and inclusion are 
prerequisites for optimal development and 
learning (Kagan & Kauerz, 2006; Siraj-
Blatchford, 2006). Staff need to know how to 
create different learning environments for 
children differing in temperament, ability, 
language, culture and ethnicity. During the 
preschool years, children become aware of 
various forms of diversity - cultural and racial, 
developmental, gender, and socio-economic - 
and their views of themselves and others are 
shaped by early childhood service providers’ 
assumptions and behaviours (MacNaughton, 
1999, 2000, 2006).  
Structural features. There is a strong 
association between the ability of staff to create a 
sound early learning environment and the key 
structural features of group size (number of 
children in a class), staff-child ratio, and 
caregiver qualifications (years of education, child-
related training, and years of experience) 
(CCCH, Policy Brief 4, 2006; Cleveland et al, 
2006; Early Childhood Learning Knowledge 
Centre, 2006). Smaller group sizes and 
favourable staff-child ratios allow each child to 
receive individual attention and foster strong 
relationships with caregivers (Graves, 2006; 
Melhuish, 2003; Work and Family Policy 
Roundtable, 2006). As services are only as good 
as the people who deliver them, having well-
trained staff and ongoing staff development and 
support is also essential (Duffy, 2006; Montie et 
al, 2006, 2007; Saracho & Spodek, 2007).  
The role of early childhood services. There is 
a variety of ways of thinking about early 
childhood and about the purposes of early 
childhood services, and each of these 
perspectives has implications for how early 
childhood services are structured and delivered 
(Moss and Petrie, 2002). The OECD thematic 
review of early childhood education and care 
policy (Bennett, 2005; OECD, 2006) identified 
two broad curricula approaches: the pre-primary 
approach (which emphasises learning standards 
or expectations related to school readiness) and 
the social pedagogic approach (in which the 
acquisition of developmental skills is perceived 
as a by-product rather than as the driver of the 
curriculum) (Bertrand, 2007). In practice, most 
jurisdictions incorporate elements of both these 
approaches, but lean towards one or the other.  
The evidence suggests that comprehensive and 
holistic services from birth to school age yield 
benefits that are as great or greater than 
preschool services alone (Morrissey & Warner, 
2007). There are even arguments for including 
the prenatal period (Doctors et al, 2008). Given 
the importance of ensuring a smooth transition 
from early childhood services to school, there 
have been increasing calls for more integrated 
curriculum and teaching between early childhood 
and early school years (CCCH, Policy Brief 11, 
2008). Hence, it is argued that a 0-8 years 
system is preferable on the grounds that a 
shared curriculum framework can act as a 
unifying influence across services for different 
age groups (Press, 2008; Reynolds et al, 2006).  
In terms of scope and function, an early years 
learning framework should provide (a) parents 
and the general public with an understanding of 
what early childhood services are aiming to 
achieve and how they do this, (b) early childhood 
practitioners with guidelines to help them provide 
young children with the best possible care and 
early learning environments, and (c) 
governments with ways of ensuring that early 
childhood services are being delivered 
effectively. 
Reviews of different curriculum and early years 
learning frameworks in Australia and overseas 
(OECD, 2001, 2006; Press, 2008) reveal 
significant variety in form and content. However, 
there are some general features that appear in 
most frameworks. To perform the above 
functions, an early years learning framework 
should include statements regarding; (a) the 
overall vision and goals for children and the role 
of early childhood services in achieving these, (b) 
the key principles on which service delivery 
should be based, (c) the outcomes that early 
childhood services can be expected to achieve 
and how these will be monitored, and (d) the 
aspects of children’s learning and development 
that should be covered.   
Policy Brief No 12 2008: Towards an Early Years Learning Framework  4 
www.rch.org.au/ccch/policybriefs.cfm 
 
  
An early years learning framework should be concise rather than 
exhaustive, and provide guidance rather than being prescriptive, leaving 
room for local and individual applications at state, local, centre and 
personal levels (Moss, 2007). However, widespread agreement and 
commitment from early childhood practitioners for the overall vision and 
the underlying principles and practices of an early years learning 
framework is vital. 
What are the implications of the research?  
• There is a need for a national early years learning framework that 
applies to all children from birth to eight years and to all early 
childhood service settings. 
• The framework should contain concise statements of the overall aims 
and outcomes of early childhood services, the principles on which 
service delivery should be based, the outcomes to be expected, and 
the aspects of children’s development and learning that are to be 
covered.  
• The framework should not include specific curriculum guidelines as to 
what should be covered (curriculum content) or how it should be 
implemented (care and teaching practices) – these should be covered 
by state and territory curriculum statements.  
• To ensure a national early years learning framework influences 
practice, it must be acceptable to and taken up by practitioners, 
therefore an extensive period of consultation and development will be 
needed.  
• The framework should seek to blend the traditionally separate early 
childhood care and education functions into a seamless service. 
• Special attention needs to be given to articulating the most effective 
ways of supporting the learning and development of infants and 
toddlers.  
• The early years learning framework should be framed in a way that 
will allow it to grow and evolve as our knowledge and views change. 
Considerations for policy and programs 
• Ways of ensuring consistency between existing state and territory 
curriculum statements/frameworks and the national framework need to 
be considered. 
• The framework should be based on widespread agreement and 
support for a broad vision regarding the crucial aspects of 
development and learning of children from birth to school age and 
how this development and learning is best achieved. 
• To gain such agreement and to ensure the framework’s adoption by 
the sector, there should be an extended period of consultation and 
debate, culminating in accepted priorities.  
• Early childhood service providers will require training and support in 
order to understand and apply the early years learning framework.  
• How the framework links with quality assurance guidelines and with 
the rating system foreshadowed in the government’s National Early 
Childhood Development Strategy requires consideration. 
• There will need to be further consideration of how the framework can 
be extended to cover other child health professionals and in-home 
learning providers (e.g. parents and caregivers).  
 
Policy Briefs 
Policy Briefs aim to stimulate 
informed debate about issues 
that affect children’s health and 
wellbeing.  Each issue draws 
on current research and 
international best practice.  
 
A multi-disciplinary team from the 
Centre for Community Child 
Health produces these Policy 
Briefs.   
 
An editorial board of national 
experts, and an advisory group of 
international experts in children's 
policy and service delivery, 
provide peer review and advice.  
 
 
References 
A full list of references and 
further reading used in the 
development of this Policy Brief 
is available from: 
www.rch.org.au/ccch/policybriefs.cfm 
 
 
Next Policy Brief 
Policy Brief No. 13 will 
address Literacy in Early 
Childhood.  
 
 
 
 
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The Centre for Community Child 
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Centre is committed to translating 
research to inform public policy, 
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Centre for Community Child Health 
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Towards an Early Years Learning Framework

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Towards an Early Years Learning Framework

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Analysis and Policy Observatory (APO)