The joint subcommittee has been diligent in its study of certain aspects of kindergarten programs in the Commonwealth. The data utilized in the study were obtained through responses to a questionnaire, through a search of the literature for pertinent research, through observation. of programs, and through discussion with a number of educators, including both teachers and administrative personnel. All information was reviewed and carefully considered before formulating the recommendations offered in this report.

Very early in the study it became evident that the kindergarten program affects and is affected by the program of the primary grades and cannot be considered as a separate unit. Kindergarten is, and should be, an integral part of the early childhood program, encompassing nursery school, kindergarten and the primary grades (NK-3). The joint subcommittee found that there is a need for increased and improved communication among teachers of these levels to facilitate continuity of the program in the early childhood span. These teachers have much information to share about child development and the learning process.

Young children are essentially exploratory learners who use their senses in discovering the world about them. From opportunities to interact with many people and to manipulate a variety of objects in the environment, the young child builds a· repertoire of foundational learning experiences. To maximize these crucial experiences, the kindergarten program must focus on realistic objectives, permit ample time for self-directed as well as teacher-directed activities, and provide sufficient manipulative materials for exploration and for enriched dramatic play.

The joint subcommittee found widespread and strong support for the objectives identified in A Guide for Kindergarten Education, a publication of the State Department of Education. Also, there is agreement that these objectives are consistent with the needs of young children as they develop cognitively, emotionally, physically, and socially. All who work with or have responsibility for early childhood programs are encouraged to re-examine program goals and objectives to ensure that the implementation of the program adequately reflects a commitment to these objectives.

There is evidence that a school day of at least five hours is necessary to ensure sufficient time for the varying activities essential to the exploratory learner. The part-day kindergarten program limits flexibility and restricts the opportunity to provide for individual needs and abilities. Many who support part-day kindergartens may do so because they have not experienced the advantages of a longer day. During the 1978-79 school year, forty percent of the kindergarten students in the State. were enrolled in programs which offered less than a five-hour day. The joint subcommittee recommends that all school . divisions implement a full-day kindergarten program and that State Basic Aid to Education provide reduced funding for less than full-day programs.

The kindergarten program which is responsive to learning styles of young children provide a wide variety of manipulative materials for hands-on, enriching experiences. Manipulative materials are the textbooks and workbooks of kindergarten; they are "the means by which a process of learning takes place which is indispensable to later, formal learning." (Cohen, 1972) Play is a natural avenue for utilizing materials in learning activities and should be regarded as a viable learning segment in the classroom. The joint subcommittee agrees that "play" should have an important role in the learning process and that school divisions must assure the provision of adequate materials in the kindergarten classroom.

Class-size or pupil-teacher ratio was identified as a critical factor in the implementation of kindergarten programs. Teachers have indicated that large class-size adversely affects their programs. As children are building a foundation of learning experiences at the kindergarten level, it is important that an optimal· environment for learning be provided. Small class-size is essential to provide the individual attention and guidance which is required· in these crucial early years. Based on information from teachers, research and knowledge of young children, the joint subcommittee concluded that all divisions should strive to implement kindergarten programs which have a maximum class size of 18-20 children with one classroom teacher. Until the optimum class size is realized, the joint subcommittee has concluded that class size for kindergarten must be established with a maximum of 21 students in Average Daily Membership per certified classroom teacher in full-day programs, and a maximum of 40 students in Average Daily Membership per certified classroom teacher in double-shift programs; a full-time aide is essential in double-shift programs.

The joint subcommittee, after careful study, recommends that the age requirements for school entrance remain unchanged. In addition, the joint subcommittee recommends that the provision of counseling sessions for parents of children entering kindergarten be encouraged. Section 22-218.1:1 B. provides flexibility for both the parent and the educator in determining the appropriateness of school entrance for the individual child. Counseling sessions offer excellent opportunities for informing parents of their options and for providing information about the goals of the kindergarten program. Local school divisions are to be commended for the counseling sessions offered these parents and are encouraged to expand these sessions to include parents of all children entering school for the first time.

Teachers are recognized as the key factor in a successful program. The joint subcommittee concurs and suggests that teachers deserve the support of knowledgeable administrators and supervisory personnel. Many decisions which have impact on the kindergarten program are made by persons who lack first-hand experiences in early childhood classrooms or recent and appropriate graduate courses in child development and early childhood education. Current certification requirements for administrative and supervisory personnel fail to recognize the need for competence in this field.

Pressures for academics are evident at the kindergarten level. Such pressures take many forms and come from many sources. Frequently, there is unnecessary pressure to teach a formal and highly structured reading program in kindergarten. The joint subcommittee agrees that some children are ready for reading instruction in the kindergarten; however, there is concern that some teachers lack the appropriate background knowledge essential for the instruction of beginning reading in the early childhood years. Readiness for reading and/or writing requires competence in the basic communication skills of listening and speaking. In talking with teachers, the joint subcommittee determined that teacher preparation programs often do not include courses which adequately emphasize the inclusion of· basic communication skills as an aspect of reading readiness, therefore the joint subcommittee recommends that courses in teacher preparation programs be examined to ensure that instruction related to the foundational experiences for reading is included.

The joint subcommittee endorses the concept of basic learning skills but rejects grade level designations which do not allow flexibility in meeting individual needs and abilities. Children develop at different rates. The early childhood years are a period of rapid and uneven growth and wide variance is noted among children of the same age. Very specific and limiting grade level designations are in conflict with what is known about child development. The joint subcommittee urges a de-emphasis of these designations. The stress on accountability has increased the emphasis on test results, exerting pressure to teach academic programs which may be in conflict with children's needs. In spite of recent developments in the area of testing, there are few appropriate test instruments for use with young children. Diagnostic information gained from test results should be one of many criteria used to plan kindergarten programs. Therefore, the joint subcommittee encourages focusing on tests as diagnostic tools.

Piaget has stated that "the younger the child, the more difficult it is to teach him and the more pregnant that teaching is with future consequences."

The joint subcommittee reaffirms its belief that education during the crucial years of early childhood should be spent in an environment which promotes learning through exploration and discovery, which enriches human growth and development, and which provides support for emerging social and emotional maturity. The joint subcommittee is confident that the citizens of the Commonwealth of Virginia are both able. and willing to facilitate the provision of this environment.