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Sodobna pedagogika/Journal of Contemporary Educational Studies


Dženeta Camović,
Jasmina Bećirović-Karabegović,
and Hašima Ćurak

Let./Vol. 69 (135)
Št./No. 4/2018
Str. 30–48/pp. 178–198
ISSN 0038 0474

The quality of the preschool education
process in Bosnia and Herzegovina
Abstract: This paper deals with the quality of preschool education in Bosnia and Herzegovina (B&H) with
a special emphasis on the process dimension. The analysis is approached through key areas that include
defined goals and standards of quality, curriculum development and its implementation, individualisation
and observation, professional training of employees, as well as monitoring and evaluation. The main goal
is to point out the key systematic solutions and research results that refer to the analysis of the preschool
education process quality in Bosnia and Herzegovina. Due to a lack of significant empirical data in this
domain, a survey was conducted with the principals of public and private preschool institutions. The results
of the research point to an inconsistent legislation that regulates the activities of institutional preschool
education, resulting in the occurrence of deviations in the practical implementation of the Common Core
of Integral Development Programs for Preschool Institutions. In preschool institutions in Bosnia and
Herzegovina, the dominant approach is the one in which the educator is in the centre and, therefore, the
emphasis is placed on the need to empower the educational professionals to develop a child-centred curriculum. It is evident that there is an inconsistent approach to internal monitoring and quality evaluation
of the educational practice in preschool institutions. A requirement that is necessary for achieving of the
process quality is the development of continual professional improvement of the educators by encouraging
and motivating the openness, research and critical reflection of one’s own practice.
Key words: quality of the process, preschool education in Bosnia and Herzegovina (B&H), quality standards.
UDC: 373.2
Scientific article
Dženeta Camović, PhD, assistant professor, University of Sarajevo, Faculty of Philosophy, Department of
Pedagogy, Franje Račkog 1, BA-71000 Sarajevo, Bosnia and Hercegovina; e-mail: dzeneta.camovic@ff.unsa.ba
Jasmina Bećirović-Karabegović, PhD, assistant professor, University of Sarajevo, Faculty of Educational
Science, Skenderija 72, BA-71000 Sarajevo, Bosnia and Hercegovina; e-mail: jbecirovic@pf.unsa.ba
Hašima Ćurak, Pre-Primary Education Adviser, Agency for Pre-primary, Primary and Secondary Education, Dubrovačka 6, BA-71000 Sarajevo, Bosnia and Hercegovina; e-mail: hasima.curak@aposo.gov.ba



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179

Introduction
By the end of the 20th century, the study of institutional preschool education effects on children’s development and learning intensified. While the initial
studies attempted to answer the question whether children attending preschool
institutions develop differently than those who do not attend them, later research
focused on differences in child development and learning outcomes in relation to
the quality of the preschool institutions they attended (Melhuish 2001, p. 1). The
quality of a preschool institution stands out as a key factor that contributes to
children’s development and learning, regardless of the characteristics and quality
of the family environment.
The results of many studies (Anderson 1992; Belsky et al. 2007; Hunstman
2008; NICHD 2000; NICHD 2002; Silva et al., 2011; Vandell and Wolfe 2000) show
that the quality of the preschool programs largely determines a child’s future development and learning outcomes. The children who attend higher-quality preschool
institutions start school with a higher level of cognitive, linguistic and social skills
(Abreu-Lima et al., 2013; NICHD 2000; Peisner-Feinberg et al. 2001; Silva et al.
2011). On the other hand, research (Silva et al. 2011) also suggests that there are
no significant difference in the development and learning of the children attending
lower-quality preschool programs and those who have not attended such programs
at all. High-quality preschool programs are defined as those that promote the optimal development and learning outcomes in all developmental domains, while the
low-quality ones are those associated with negative outcomes on the development
and learning of children (Hunstman 2008, p. 7).
Defining and determining the quality of institutional preschool education is
not an easy task. In this regard, Hwang (Hwang in Hunstman 2008, p. 1) points
out that quality is a ‘slippery’ and multifaceted term that can be estimated from
different aspects and perspectives. Smith ( Smith 1996, p. 7) states that quality is
a relative concept that reflects values ​​and beliefs which depend on the social and
temporal context. Nevertheless, it is possible to outline the elements of preschool
education that are universally recognised as important for the optimal development and learning of children: a safe and healthy environment, developmentally

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appropriate stimulation and learning opportunities and positive interactions with
peers and adults (Vermeer et al. 2016, p. 35).
Institutional preschool education is viewed as a system in which the quality of
the structure and the quality of the education process can be recognised. Hunstman
(2008) lists a number of elements that can be evaluated within the structure: the
size of the educational group, the ratio of the children and educators, the education
and professional development of the educators, the permanence of the educators in
educational groups, the salary of the educators and the physical environment of the
kindergartens. The quality of the education process encompasses: the interaction of
the child with its peers and educators and its engagement in various activities and
with different materials (Vandell and Wolfe 2000, p. 3; Vermeer et al. 2016, p. 35).
The structural aspects of quality are strongly related to the quality of the
education process and they are both considered to be reliable indicators of the
quality of the educational practice in the institutional context (Cassidy 2005;
Hunstman 2008; Marjanovič Umek 2014; NICHD 2002; Vermeer et al. 2016). The
structural quality directly influences the quality of the process and the quality of
the process affects the development and learning outcomes of children (NICHD
2002). Therefore, a lower ratio of children to educators, a lower size of educational
groups, higher levels of education and professional development of the educators and
their permanence in educational groups are all associated with the higher quality
of the process itself (Hunstman 2008, p. 7). The best structural quality indicators
of the process, according to Cassidy (2005, p. 3), are the educators’ salaries and
their education. Consequently, the claim is made that the quality of the education
process is higher in countries with stricter standards in terms of teacher education,
salary levels and teachers’ and principals’ experience levels (Phillipsen et al. 1997;
Cassidy 2005, p. 3).
Although there is evidence of many studies (Hunstman 2008; NICHD 2002;
Vermeer et al. 2016) on the importance of the structure and quality dimensions of
preschool institutions’ quality for the child’s development and learning, there is
little cognition of the quality of preschool education in different countries. There are
great differences in educational policies, legislation and standards that can affect
the quality of the preschool education process. The aim of this paper is to present
the preschool education quality in Bosnia and Herzegovina (B&H) with a special
emphasis on the quality of the process. This quality of the process is analysed using
systematic solutions, legislative and professional documents and relevant research.
The status and development perspectives of preschool education in B&H
in legal acts and strategic documents
In recent years, Bosnia and Herzegovina (B&H) has placed considerable interest
in the development of preschool education, which is reflected in the adoption of a
number of legal acts and documents, the most important of which are mentioned
next. The Framework Law on Preschool Education in Bosnia and Herzegovina
(Okvirni zakon … 2007, hereafter the Framework Law) regulates the activity of

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preschool education. In 2008, the Strategic Guidelines for Education Development
in Bosnia and Herzegovina (Strateški pravci … 2008) were adopted together with
the 2008–2015 Implementation Plan, which foresees short-term, mid-term and
long-term development goals. The Framework Law (Okvirni zakon … 2007, Article
22) also defines the need to establish a common core of comprehensive development
programs for work in preschool institutions. In accordance with the aforementioned,
the ministers of 12 Educational Ministries in B&H concluded the Agreement on the
Common Core of Integral Development Programs for Preschool Institutions in 2009
(Sporazum o zajedničkoj jezgri … 2009, hereafter the Common Core). In this manner,
they committed themselves to take the Common Core (Sporazum o zajedničkoj jezgri
… 2009) as the basis for the development of programs to be implemented in all
entities/cantons/Brčko District of B&H, starting at the beginning of the 2009/2010
school year. This was done to ensure the compliance of entity/cantonal programs and
the consistency in the quality of preschool education (Camović and Hodžić 2017).
The aim of preschool education in B&H is to ensure optimal and equal conditions for every child from birth to school, without discrimination on any grounds,
in order to develop and realise all of their intellectual and physical abilities and
competences through various forms of professional and quality autonomous, institutional and non-institutional preschool education (Sporazum o zajedničkoj jezgri
... 2009, p. 7). According to the Framework Law (Okvirni zakon … 2007), preschool
education in B&H is based on the humanistic developmental principle, the principle
of professional autonomy1 and professional responsibility, along with the principle
of democracy, which guarantees the right of each child to equal opportunities for
participation in an appropriate form of preschool education without discrimination
on any basis.2 It promotes the best interests of the child, secures his/her own values
and thus ensures optimal child development along with the right to language and
respect for religious freedom. Such a legislative context of preschool education quality
in B&H has its starting point in the new insights into the child and childhood as
outlined in the UN Convention on the Rights of the Child (Konvencija ... 1989) and
the role that the community plays in preschool education. Basically, everything that
is mentioned contains an important determinant of quality—the view of children
as subjects with their own capacities, intentions, interests and needs, and with
the right to respect and dignity. All of the above-mentioned basic principles and
goals that ensure the fundamental rights of children are defined in the legislative
framework of preschool education in B&H, however, there is little knowledge of
1
The principle of professional autonomy implies the ability of professional staff to critically review and evaluate their work and its effects, which can be achieved through continuous professional
development and constant support for work quality (Strateški pravci razvoja … 2004, p. 9).
2
The principle of democracy is based on the fundamental right of all children to upbringing and
education. It is based on the idea of upbringing for tolerance, respect for diversity and multiculturalism
and the idea of pluralism
​​
and freedom in order to meet the most diverse needs of children and families.
The humanistic and developmental principles are reflected in the right of the child to live in a healthy
environment, to have equal rights when it comes to conditions for normal growth, development and
learning, so that it can optimally develop in the physical, intellectual and social spheres. It implies equal
rights for all children, regardless of physical and psychological development, sexuality, social status,
cultural milieu and so on (Strateški pravci razvoja … 2004, p. 9).

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how they are understood and implemented in the practice itself or in the program
content during the daily interactions of educators and children, and yet these are
the most reliable indicators of the education process quality.
In order to harmonise the policy of preschool education with the goals of
the European Union, the Platform for the Development of Preschool Education in
Bosnia and Herzegovina (Platforma za razvoj … 2017, hereafter the Platform) was
adopted in December 2017 for the 2017–2022 period. The Platform (Platforma za
razvoj … 2017) combines the strategic goals of preschool education in B&H that
are grouped into five packages: increasing coverage, ensuring quality of preschool
education,3 regular funding, inclusion and sensitisation of society for the importance
of institutional preschool education. For the amenable educational authorities,
this serves as a basis for the development of their own strategies and plans that
are aimed at furthering the quality of preschool education, as well as an important
precondition for cooperation with international partners.
The Law on the Agency for Preschool, Primary and Secondary Education
(Zakon o Agenciji … 2007) gives jurisdiction to this institution type for preschool
education as well. Since its establishment until nowadays (2007-2018), the Agency
for Preschool, Primary and Secondary Education (hereafter the Agency) has made
significant contributions to the development and improvement of the quality of
preschool education in B&H.
Within its mandate, the Agency has the jurisdiction to establish the standards
of knowledge and assessment of the achieved results, to develop a common core
of the preschool, primary and secondary education curricula and to take other
professional activities that fall within the area of ​​standards of knowledge4 and
educational quality assessment, as determined by special laws and other regulations. The Agency’s activities in the field of preschool education in B&H are mainly
focused on establishing and developing quality. The Agency, within its competence,
undertakes activities aimed at establishing the standards for work quality of the
educators, pedagogues and principals in preschool education, drawing up recommendations, reports and analyses for competent educational authorities in the sphere
of improving and developing the quality of preschool education in B&H based on
empirical research (Informacija o implementaciji ... 2012, p. 6). It is also competent
to cooperate with pedagogical institutes and other institutions designated to offer
support, modernise and develop preschool, primary and secondary education by
3
To achieve this goal, it is necessary to analyse and modernise the existing programs and to develop
new ones for preschool education, while taking into account the facilitation of the transition of children
from kindergarten to primary school; to ensure the quality of the staff (management, professional and
other staff) through appropriate initial education and lifelong learning or professional development; to
introduce the practice (system) of monitoring and evaluation of preschool institutional practices and
their programs; to create necessary pedagogical documentation; to create a database, i.e. a statistical
system that meets the requirements of Eurydice and Eurostat (Platforma za razvoj ... 2017).
4
Standards of knowledge and student achievement in B&H have thus far been defined only at the
level of primary education but not of preschool education. At the preschool education level in B&H there
are the Standards of Quality of Work of Educators, Pedagogues and Principals in Preschool Education
(Standardi kvaliteta rada … 2011) and the current plan is to draft quality standards for other professional associates. The process of developing the Common Core of Integral Development Programs for
Work in Preschool Institutions in B&H is underway.

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providing advice to competent educational authorities on the development and
implementation of new program contents and so on.
In addition to the Agency, other competent educational authorities also play a
major role in establishing the quality in preschool education. Pedagogical institutes
play a significant role in the process of quality evaluation and expert supervision
of the work of preschool institutions, as well as in monitoring and evaluating the
work and professional development of the educators. There are eight pedagogical
institutes and one pedagogical institution in the Department of Education of the
Government of the Brčko District in B&H. The institutes vary according to their
legal status, so that some of them are set up as administrative organisations or units
within the Ministry of Education, while others are autonomous administrative units
or organisations responsible to the canton government. Regardless of their legal
status, the pedagogical institutes and the pedagogical institution in B&H generally
have a similar function, namely linking the framework legislation and educational
policy with the educational practices, thus directly affecting the functioning of the
education system at the level of educational institutions (Izvještaj o inicijalnom ...
2016, p. 20). The pedagogical institutes monitor, assess and evaluate the quality
of educational work in preschool institutions. Competent educational authorities
are obliged to provide the control mechanisms for the professional supervision of
pedagogical monitoring and work quality improvement in both public and private
preschool institutions in order to ensure that all preschool institutions work in
accordance with the same standards and norms.5
Structure, content and quality analysis of preschool education programs
in B&H
According to the Framework Law (Okvirni zakon … 2007, Article 21), the
Common Core (Sporazum o zajedničkoj jezgri … 2009) must be applied in all public
and private preschool institutions. Consequently, it takes into account that each
preschool institution can retain the freedom to create content in accordance with
the specific needs of the institution and the local community. The Common Core
(Sporazum o zajedničkoj jezgri … 2009) and its plans should be implemented in a
way that guarantees and ensures quality education for all children, which in turn
ensures the application of programs that meet the developmental needs of preschool
children, as well as the satisfactory compliance and adaptability of these programs
to the specific needs of the preschool institution and the local community (ibid.).
The structure of the programs in the Entity of the Republic of Srpska and of
the cantonal and Brčko District B&H programs is regulated through four developmental domains: physical development, socio-emotional and personality development, intellectual and speech development and communication and creativity
development. All developmental domains are defined through the development and
5
They mainly refer to the structural quality: space, equipment, number of educational groups,
number of adults per number of children, vocational qualifications of the educational workers and
structure of the working week.

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learning outcomes6 within the integrated program. The structure of the program
is operationalised through expected outcomes and potential activities for children
at different ages7 within the framework of each developmental domain (Sporazum
o zajedničkoj jezgri ... 2009).
Due to the unadjusted time dynamics of when the Entity and Cantonal laws
on preschool education came into effect, there are also certain deviations in the
integration of the Common Core (Sporazum o zajedničkoj jezgri … 2009) into the
overall development of their programs and, consequently, there is a need for further
research in this area. In order to create recommendations for the improvement and
development of comprehensive curricula for the educational activities with children
of preschool age, the Agency conducted an analysis8 of the existing curricula to
determine the extent to which they are based on the Common Core (Ćurak 2011).
Through the this analysis of the integral preschool programs in all B&H
administrative units, many shortcomings, deviations and disagreements with the
Common Core (Sporazum o zajedničkoj jezgri … 2009) are noted. It is pointed
out that in many of the existing programs there is no noticeable shift from the
traditional emphasis on the content of teaching to the development and learning
outcomes that are found in the Common Core (Sporazum o zajedničkoj jezgri …
2009). Recommendations concerning the improvement of the existing programs and
the development of new comprehensive programs that aim to improve educational
work with preschool children can be summarised as follows: (1) it is necessary to
reconceptualise the cantonal preschool programs and to harmonise them with the
Common Core (Sporazum o zajedničkoj jezgri … 2009) and the Framework Law
(Okvirni zakon … 2007); (2) there is a need to create a framework curriculum
for preschool education that would define, in more detail, its theoretical starting
points, goals and concrete developmental tasks, as well as the principles for the
organisation of learning environments. The framework curriculum would clearly
define the role of the educator and the principles of planning and programming
while also determining the role of the family.

6
Preschool education should be based on the outcomes for child development and learning, focusing
on the child rather than on the content, which implies a quality program and competent professional
staff, a safe and stimulating environment, a holistic approach to the child, a pluralism of work methods
and interdisciplinarity, as well as flexibility. (Platforma za razvoj … 2017). An example of development
and learning outcomes for children at the age of five: 1. Communication skills (understands and uses
comparative adjectives; raises questions when, how and why; ...) 2. Motor skills (climbing and descending
stairs without help, from one leg to the other; ...) 3. Self-reliance (dressing and putting on shoes alone;
...) 4. Social skills (playing with other children; ...) 5. Cognitive abilities (grouping pictures of familiar
subjects; ...) (Sporazum o zajedničkoj jezgri... 2009, p. 22).
7
Operationalisation is performed according to the developmental psychological model (children
aged six to nine months, 10–12 months, 15–18 months, 19–24 months, 24–36 months, four years, five
years, six years).
8
For the purposes of this analysis, valid comprehensive developmental preschool programs were
gathered that are applied in all administrative units in B&H (programs of the Entity of the Republic of
Srpska, the Brčko District of B&H and the five Cantons in the Federation of Bosnia and Herzegovina).

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The quality standards for educators, pedagogues and principals in
preschool education in B&H
The quality of the initial education of the educators and of their continuous
professional development, which is oriented towards the improvement of their
practice, are both important for the development of the educators’ professional
competences and, in turn, for the quality of preschool education itself. In B&H,
professional training is the right and the obligation of the educator, defined in legal
acts and subordinate legislation. Each of the 12 ministries of education has subordinate legislation that is regulated in education systems but there is no such type of
act at the national level of B&H, which is understandable in terms of jurisdictions.
In cooperation with relevant educational authorities, the Agency started
working on activities for the project called the Standards of Work Quality in
Preschool Education in B&H at the end of 2010. Emphasising the need for quality
standardisation in this area, the Standards of the Work Quality for Educators,
Pedagogues and Principals in Preschool Education (Standardi kvaliteta rada …
2011, hereafter the Standards of Work Quality) document was developed. The main
goal of this process is to develop the quality standards and their indicators, which
should enable external and self-evaluation of the work of the educators, pedagogues
and principals and serve as a guide through their professional development. This
document enables the amenable persons and institutions to monitor the work
quality and professional advancement of the educators, pedagogues and principals
in preschool educational institutions, thus facilitating the evaluation of preschool
institutional work as a whole and identifying the needs in the field of professional
training, as well as developing a professional training system based on the identified
needs and interests (Standardi kvaliteta rada … 2011, p. 4).
The Standards of Work Quality (Standardi kvaliteta rada … 2011) are made
up of a set of indicators that are grouped into thematic units and a list for external
and self-evaluation that is conducted through the self-reflection of educators and
the documentation of pedagogical practice.9 They relate to the following thematic
Examples for educators: 1) applies a program based on principles and particularities of the work
with children of preschool age—respect for the child’s personality, active learning, holistic approach
to development and planning based on the principles of an integrated curriculum; 2) understands and
acknowledges the characteristics of development and learning of the children of preschool age; 3) knows
the theoretical attitudes about children’s learning and development and follows professional literature
that deals with these issues; 4) applies activities that are based on play, while respecting the principles
of personality development and behavioural development; 5) plans activities and content that initiate
and support intellectual development, critical thinking and judgement making, while also supporting
the child’s affinities and aspirations; 6) while performing activities, links the cognitive development
and academic achievement of the children with socio-emotional development and other aspects of development; 7) encourages the children to discover and experiment intuitively and naturally, to analyse
and generalise the observed principles that they have become able to cope with; 8) provides conditions
in which the children are involved in resource management (equipment, resources and materials) in
accordance with their capabilities; 9) knows, regularly evaluates and monitors the learning outcomes,
and interconnects and adjusts the children’s learning and developmental needs; 10) collects, stores and
records data on the changes in the children’s development and progress; 11) encourages the children’s
autonomy and sense of responsibility for the procedures they have become able to deal with ... (ibid.).
9

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units:10 (1) understanding the constructivist philosophy of education and the
basic principles of preschool education; (2) individualisation and differentiation;
(3) observation and monitoring of children in accordance with the development
and learning outcomes;11 (4) partnership with family and local community; (5)
planning based on Integrated Curriculum Principles; (6) strategy for supporting
the development and learning through play; (7) creating an environment for the
development and learning through play; (8) implementation of philosophy and
skills of quality / non-violent communication in upbringing; (9) embracing diversity
and democratic principles; (10) teamwork; (11) quality improvement and continuous professional development; and (12) professional ethics and responsibility
(ibid.).
The aforementioned quality standards of the educator’s work emphasise
the importance of the child-centred approach, in which the child constructs and
develops knowledge and insights through active participation, experiences gained
directly and spontaneous learning opportunities, and not via direct content teaching
by the educator. The main focus for the future reforms in preschool institutions
in B&H should precisely be on ensuring that the suggested quality standards of
the educators’ work are fully implemented in practice, with orientation towards
the children as researchers and active participants in the learning process. The
Standards of Work Quality (Standardi kvaliteta rada … 2011) should serve as a
tool for moving towards a more focused approach to children, based on play and
stimulating forms of learning (UNICEF 2016, p. 33).
Through on-site observations during research12 (UNICEF 2016), it is concluded
that a mere definition of the Standards of Work Quality (Standardi kvaliteta rada
10
They are structured through 12 educator standards, each of which contains a short description
if the standards, guidelines or indicators with accompanying evaluation lists that have descriptors and
a blank space for brief examples or illustrations of the realised indicators. They are founded on the
pedagogical, methodological, action, organisational, social and communication competences of educators
and on the need for permanent professional development, responsibility and ethics (ibid.).
11
Examples for educators. Standards: The educator applies expert and scientifically based procedures
to track the development and detect its positive trends in preschool children along with the indicators
of developmental change. The educator applies appropriate procedures and techniques for systematic
observation of the children’s activities and behavioural manifestations, tracks developmental changes
and may link them to learning activities that affect developmental changes. Indicators: Qualified to
evaluate the outcomes and to timely detect the trends in developmental changes under the influence of
pedagogical measures and procedures within the applied learning programs. Qualified for the methodology
of systematic observation in the function of recognising the manifestations and indicators of changes
in development with the support of a professional team in kindergartens. Uses different techniques for
the observation, recording and tracking of child development and learning. Qualified to collect and sort
the products that can be used as arguments and explanations for the observed developmental changes,
including “sensitive development periods”. The information that is obtained during the process of child
observation and monitoring is used by the educator to further develop an action plan with the group and
to plan individualised activities. The results of the observation and monitoring of children are exchanged
with other professional staff and parents, respecting the privacy of the data. Qualified for micro-research
in the group and the application of different research instruments with the aim of improving pedagogical
practices and effects of educational activities (ibid.)
12
In addition to Albania, Kosovo and Montenegro, UNICEF (2016) conducted research on the quality
of preschool education in B&H. The quality assessment was carried out through the European Quality
Framework (EQF) in early education, which is defined through broad transversal principles (availability, workforce, curriculum, monitoring and evaluation, funding and management). The research was
based on consultations with relevant representatives of competent educational authorities, including
observations and visits to preschool institutions.

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… 2011) does not guarantee their application in practice as well. The Standards
of Work Quality (Standardi kvaliteta rada … 2011) are a recommended but not a
mandatory resource. After the Professional Committee of the Agency adopted the
Standards of Work Quality in 2011 (Standardi kvaliteta rada … 2011), their promotion was arranged and dissemination activities were organised. The Agency held
31 expert meetings for all qualified educators in preschool institutions in order to
educate them on the implementation of the work quality standards for educators.
A total of 1,550 preschool educational workers have thus been trained and everyone
received a copy of the document for use in practice.
Taking into consideration that the change of pedagogical practice cannot
survive without continuous and concrete actions and preparations for the transfer,
it is important to further develop the continuous professional development of the
educators in order to transfer the defined educator work quality standards into
their educational practice. This implies the creation of a system (Urban 2011,
p. 28) in which the educators have the opportunity to act, explore and develop their
professional competencies in a community of reflective practitioners. In order to
improve the professional development of the educators, the Agency announced a
Model for the Promotion of Continuous Professional Development of Educators,
Teachers and Professional Associates in Bosnia and Herzegovina (Model za unapređenje ... 2014) in 2014.13 The main objective of this model is to encourage the
educators to assume responsibility for their own individual professional development and thus improve the quality of preschool education in B&H (ibid., p. 7).
As a basic assumption in this organisational model of the system of professional
improvement of educators, the analysis of the needs of the educators at both a
personal and institutional level is emphasised.
In order to gain insights into the educators’ professional development needs,14
the Agency has also carried out a research project entitled the Analysis of Needs
for Occupational Advancement and Professional Development of Educators for
Preschool Age Children in Bosnia and Herzegovina (Analiza potreba odgajatelja
… 2016). The main objective of the research was to establish a list of priorities for
the reform of continuous professional development for the educators in accordance
with the competencies defined in the Standards of Work Quality (Standardi kvaliteta rada … 2011). The research results suggest that the educators evaluate their
professional competencies highly. High estimates are established for the following
standards: creating an environment for development and learning through play;
The model for improving the system of continuous professional development of educators, teachers
and professional associates in Bosnia and Herzegovina includes three important segments: planning,
implementation and evaluation. Within these three segments, there are four levels that are reflected
on all components of the educational system. Planning (objectives and needs of the system, needs
analysis, educational institution’s plan, individual plan), implementation (rule books, accreditation,
databases, preparation and conduct of seminars, trainings in and out of the educational institution,
individual activities), evaluation (conclusions in program evaluation, conducting program evaluation,
self-evaluation, reflection). The model points out the directions and forms of professional development
at the institution and beyond (Model za unapređenje … 2014, pp. 8–9).
14
The research was conducted on a representative sample of educators working in public and private
preschool institutions under the jurisdiction of the amenable educational authorities in 10 cantons in
the FB&H (N = 147) and in the Brčko District of B&H (N = 7).
13

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support strategies for the development and learning through play; individualisation
and differentiation; understanding the constructivist philosophy of education and
the basic principles of preschool education; and partnership with the family and
the local community. Slightly lower estimates are identified for quality improvement and continuous professional development, planning in accordance with the
integrated curriculum, child observation and monitoring in accordance with the
development and learning outcomes (Analiza potreba odgajatelja … 2016, p. 51).
The aforementioned results of the educators’ self-assessment are considered and
argued to be an overrated image of their own competencies. Through an in-depth
analysis and comparison of research findings, the claim is made that the educators
are partially convinced of their own professional competencies and that the results,
therefore, do not reflect the real state of affairs in this domain (ibid., p. 52).
The research goal
In order to obtain more significant empirical data, the authors of this text
conducted research with the principals of public and private preschool institutions
in B&H. The main aim of the research was to analyze the opinions of the principals
of preschool institutions on certain aspects of quality. Accordingly, three research
questions were asked: (1) How is the quality of the process regulated and evaluated
within preschool institutions? (2) How are the principles of individuality and equal
opportunities implemented in daily practice of kindergartens as basic quality determinants? (3) How do the principals perceive possible difficulties, challenges and
opportunities to improve the quality of preschool education through the process
dimension?
Method
A descriptive method was used to analyse and interpret the research data
obtained through the survey questionnaire. The constructed questionnaire contained seventeen open and closed question types, which included the general indicators of the preschool institution functioning (the lawful and legal regulations,
the pedagogical standards and norms, the program offer and its diversity), as well
as specific process quality segments (respecting the rights and needs of children,
inclusion of children with special needs in preschool institutions, observation of
children, individualised access, professional qualification of staff, accompanying
expert services, etc.).
Sample
The initial plan was to include 100 principals of preschool institutions into
the research, or 30% of the total number of principals in preschool institutions in
Bosnia and Herzegovina. Accordingly, the survey questionnaires were sent to 100

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email addresses of potential respondents, obtained through a random selection
within predefined stratums (administrative units). Very few principals responded
in the first fifteen days after the emails were sent, i.e. within the time scheduled
for sending a response. In a prolonged time-frame of one month, with the questionnaires repeatedly sent to the same e-mail addresses, a total of 50 principals
responded, which is 50% of the initially planned sample or 15% of the total number
of principals in preschool institutions in Bosnia and Herzegovina. The survey
sample has the characteristics of a randomly stratified, non-representative sample
but with very good territorial distribution (per administrative unit), providing
a more complete insight into the subject matter of the research. The number of
principals per each administrative unit is as follows: Una-Sana Canton (N = 3),
Tuzla Canton (N = 3), Zenica-Doboj Canton (N = 16), Bosnian-Podrinje Canton
(N = 2), Central Bosnia Canton (N = 2), Herzegovina-Neretva Canton (N = 7),
West Herzegovina Canton (N = 3), Sarajevo Canton (N = 4), Republic of Srpska
Entity (N = 6), Posavina Canton (N = 1), Canton 10 (N = 2), Brčko District of B&H
(N = 1). Taking into account the type of the institution founder, 20 principals (40%)
from private preschool institutions and 30 principals (60%) from the institutions
whose founder was a local self-government unit participated in the research. Two
respondents are male (4%) and 48 female (96%). The average age of the respondents
is 47.5 years, with the participant ranging from 35 to 60 years of age.
Data analysis
The collected data were analysed using qualitative and quantitative analysis
that provided a more complete picture of the research problem. By using a quantitative approach, the qualitative data (answers to open type questions) were transformed into numerical indicators with the aim to obtain a more accurate display
of the research results. With respect to the statistical data analysis, frequency and
percentage calculation were used.
The research results and their interpretation
1. The regulation and evaluation of the process quality within preschool institutions
The aim of this research was to examine the existence of subordinate legal
acts that regulate the quality of educational work in preschool institutions. Most
(93%) of the surveyed principals list rule books that primarily regulate the activity,
organisation and functioning of the preschool institutions while emphasising that
there are no rule books that regulate the quality of the educational work of an institution. In each preschool institution, more or less, certain internal procedures exist
that regulate the quality of work. The principles mostly emphasise the existence
of an expert body of the Council of Educators, followed by a plan for visiting the
experimental educational activities of educators and examining the analytical work

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on monitoring the implementation of the annual work programs. Therefore, there
are no special rule books that regulate quality, although most of the institutions
monitor the quality, assessing and evaluating it using certain internal procedures.
The responses of the principals surveyed to the question of how the quality
of work and the functioning of an institution is monitored point to an incoherent
approach to monitoring and self-evaluation of educational work (Table 1).
How do you monitor the quality of work and the functioning of
the institution?

Yes

No

f

%

f

%

There are individuals who are in charge of monitoring the quality.

12

24%

43

86%

There is an internal team / service for the quality.

32

64%

18

36%

By creating a development plan for the institution.

17

34%

33

66%

Management by international standards (ISO, HACCP and similar).

3

6%

47

94%

None of the above mentioned.

5

10%

45

90%

Table 1: Monitoring the work quality and functioning of the institution (N=50)

In the majority of preschool institutions (64%) there are expert commissions,
working groups or quality teams responsible for monitoring the quality of work at
the institution, while several institutions (24%) only have individuals responsible
for this task, mostly pedagogues and/or principals. The principal of a preschool institution “having his role of a manager, assumes the greatest burden (responsibility)
of planning, organizing, motivating and evaluating the success of the kindergarten”
(Mlinarević 1999, p. 34). The Law on Preschool Education (Zakon o predškolskom
… 2008, Article 49) defines the roles of principals in B&H, which may range from
proposing the curriculum and activities to improve the work to monitoring and
directing the work of the educators. Therefore, this research is based on the fact
that the principle has the highest responsibility in the process of evaluating and
improving the work quality of the preschool institution.
There are also development plans in some preschool institutions (34%), while
only a few (10%) evidently lack a continuous, critical review and self-evaluation in
practice—and consequently their openness to research and willingness to change are
questionable. The results point to the existence of different forms of work quality
and institutional functioning monitoring, led by individuals or teams of experts.
With this in mind, it is important to point out that it is only a team approach—a
joint action and team engagement for quality— that can be taken as a prerequisite
for an effective change and quality shift in educational practice. The role of the
quality team implies not only the assessment and evaluation of quality but also
that there is work on its improvement, which cannot be achieved through the
action of an individual only. That is why the existence of working groups or teams
is more significant for the process quality rather than individuals responsible for
quality monitoring.

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2. The implementation of the individuality and equal opportunity principles as
basic quality determinants in the everyday practice of kindergartens
The continuous monitoring and evaluation of the quality of educational work
ensures the compliance with the principles of individuality and equal opportunity,
which is one of the basic determinants of the quality of the educational process. An
individualised approach takes into account what each child brings into the educational process and is based on the following beliefs and practices: there are no two
completely equal children; the children bring their own experiences, perceptions,
skills and learning styles into the teaching and learning activities; the educators
respond to individual differences (Saifer et al. 2000, p. 25). An individualised approach to child development intends to take into account all aspects of the child’s
personality, whereby “the educator applies proven and effective ways of working
while choosing and preparing the learning activities that correspond to the achieved
levels of development, possibilities and styles, and thus adjusts his procedures and
methods of work” (Standardi kvaliteta rada ... 2011, p. 11).
Daily routine and individualisation

Yes

No

f

%

f

%

The daily rhythm is in compliance with the children’s individual needs.

30

60%

20

40%

The child can choose the activities on its own.

39

78%

11

22%

The child can decide on the afternoon nap.

23

46%

27

54%

Table 2: Harmonisation of the daily rhythm with the children’s needs (N=50)

According to the responses of the respondent principles (Table 2), there are
different approaches to time management and differing levels of respect towards
the children’s individual needs in kindergartens. While 60% of the respondent principles say that the rhythm of the day is fully in compliance with the individual needs
of the child, 40% of them say that the daily rhythm and the schedule of activities
are generally the same for all children but that freedom of choice is given within
the framework of individual activities—e.g. a child chooses alone which drawing
accessories it will take or which centre to join. The greatest challenge for educators
is the time allotted for the children to sleep. While 46% of the respondents say that
an afternoon nap is optional and that the children who cannot sleep at that time
can be engaged in quiet activities, 54% of them state that sleeping is mandatory for
all children at an anticipated time. According to the responses, the reasons for this
can be conceptualised in three ways: there are no spatial and personnel conditions
for special seclusion and treatment of some children if they do not want to sleep;
the attitudes of the educators are negative towards the possibility that the child
should decide about it at all; the sleep time for the children represents the leisure
time that the educators need during the day for other professional activities. If the
educators are solely focused on direct contact with children during the entire day,

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the question is whether there are possibilities for mutual cooperation, organised
professional discussions and individual/team work on different segments of preparation and improvement of the educational practice. Therefore, it can be concluded
that time organisation and the dynamics of daytime activities in a kindergarten is a
very complex issue that implies key elements that affect the quality of the education
process: the implicit pedagogy of the educator, the organisation of kindergarten
space and also the question of additional working hours without direct contact
with children. All this points to a need for an active reflection on the mentioned
segments, which in their interrelated and interactive relationship point to the path
of quality development for the kindergartens’ educational practice.
It is interesting to note that in this research with the principals, the question
was asked whether the annual reports of their institutions contain data (procedures, methods, plans) from the domain of individualisation in the educational
process (Table 3). Most of the respondents (74%) stated that they do not include
this information in their annual report because the reports are written according
to the prescribed methodology. Only a few principals (26%) responded positively
and as examples mentioned “tailored programs for children with special needs,
child portfolios, and reports of educators and professional associates on the implementation of the Annual Program,” and they also mentioned the “plan and
program of teams for inclusion, along with the social and public activities, where
there is a discussion on individual cases that require special attention” (Principal
38). The obtained results indicate that the educators maintain a certain form of
record keeping for child observation, but that the principals (74%) do not present
the evidence of this practice in their reports.
Yes
Aspects of individualisation

No

f

%

f

%

Do educators possess certain documentation for observing and monitoring the children?

48

96%

17

34%

Do your annual reports contain information from the
domain of individualisation in the educational process?

13

26%

37

74%

17

34%

16

32%

Do educators, together with the professional team and
parents, create individualised programs for children with
special needs?

When
needed
%
f

17

34%

Table 3: Aspects of individualisation (N=50)

Individualisation implies the knowledge of the child’s developmental characteristics as well as continuous observation and monitoring of children’s development and learning. On this basis, by using different strategies of individualization,
educators can adequately respond to the child’s needs, with the aim of creating
better educational effects. Most principals (96%) point out that the educators have
specific documentation for observing and monitoring the children (Table 3) and
they mention the following: an observation diary, a book for keeping a record of

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the children’s development and learning, a book of pedagogical documentation, a
portfolio for each child, an observation leaflet, a development map for tracking the
children’s progress and a check list. However, the question arises as to whether the
documentation is collected systematically and whether it is used to improve the
practice or to serves its own purpose. The systematic collection of documentation
(which materialises and visualises the real interactions between the educators and
children) is important for a better understanding of the children and the process of
their learning and advancement, and leads to better interaction with them (higher
quality of the process). Through documentation (children’s portfolios, diaries, written
notes, photographs, etc.) the educators can gain a more complete insight into the
child’s achievements and developmental needs and interests and, thus, the whole
process is based on the basic principles of preschool education.
The humanistic principle is most often applied in preschool institutions in
an effort by the educators to respond in a proper way to the developmental needs
and interests of the children, especially when it comes to the specific needs of the
child. In this regard, the respondents state that there are mainly no assistants in
institutions to work with the children who have developmental difficulties and, in
some institutions, there are even no individualised programs for children with special
needs. An equal number of respondents (34%) states that the educators, along with
the professional teams and parents, continuously or occasionally create individualised programs for children with special needs while almost the same number of
respondents (32%) responded negatively to the same question. It is this particular
problem stated by the respondents that is also recognised in the wider community
as one of the most important problems, and is converted into a strategic goal of
the new strategic document for the development of preschool education in B&H as
a result (Platforma za razvoj predškolskog ... 2017). For the purpose of achieving
this goal, the proposed measures call on and empower the competent educational
authorities to engage more intensively in developing additional capacities of the
preschool institutions to provide expert support for an early recognition of and
early intervention in children with disabilities, and in the adaptation of programs
and methods of work while creating the prerequisites for engaging assistants in
the educational work with children.
When it comes to the principle of professional autonomy, the responses suggest
that in preschool institutions this principle comes to the fore in those educators
who are ready to be innovative, different and more productive, and who are ready
to explore and change the practice. The autonomy of the educator is respected when
it comes to the freedom of choice regarding the content and different methodological approaches in order to meet the diverse needs of children and families. The
results obtained suggest that additional efforts should be made to ensure equal
conditions for all children.

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3. The perception of possible difficulties, challenges and opportunities for the
improvement of preschool education quality through the process dimension
Multidimensionality and the complexity of educational work implies the existence of different challenges for all participants in this process. According to the
respondents’ replies, the challenges faced by educators can be divided into several
major sources of difficulty, namely: large group sizes, lack of expert teams to work
with children who have developmental difficulties, problems of educational work
planning and lack of continuous external and internal evaluation of the institution’s
work quality. Among other difficulties, they also mention problems of material
nature, the lack of professional staff and the lack of parental interest.
Improving the quality of educational work, according to the participants’
responses, can be understood through four levels. The first level refers to the
wider community/system/founder (adoption and implementation of the preschool
law, adoption of pedagogical standards, operative program coordinated with the
Common Core (Sporazum o zajedničkoj jezgri … 2009) for the cantons where it is
not regulated; the expansion of the network of preschool institutions; the smaller
proportion of children compared to educators; the smaller number of children in the
groups). The second one is the level of the local community (extending the existing
institutional capacity and expanding the network of preschool institutions). The
third level which needs continuous work on education quality improvement is the
institutional level (opportunities for professional development and improvement;
more stimulating working conditions, including material and spatial conditions,
inclusion of professional associates—pedagogues, speech therapists, psychologists,
and assistants in the educational work). The fourth level refers to the individual
level (continuous work of the educators on themselves and permanent professional
training).
It is quite clear that the development of the quality of preschool institutions
in Bosnia and Herzegovina is not something that can happen only occasionally and
partially, but it requires daily and continuous investment in all aspects mentioned.
The path of developing the quality of the preschool education process needs to
be based on quality structural elements (a lower ratio of children in relation to
educators, smaller groups, higher level of education and professional development
of the educators and their permanence in the educational group), and adequate
legal regulation. However, since the quality of the process of educational practice
is not a direct consequence of the improvement of structural elements and legal
regulations, it is necessary to build it in the context of educational work, through
the support of the educators as reflective practitioners. In accordance with all of the
above-mentioned research results in this paper, it can be concluded that investing
in the continuous professional development of the educators in the context of their
real pedagogical work and the development of preschool institutions “from within”,
both represent a link that is significantly missing in the process of planning the
quality of the preschool education process in Bosnia and Herzegovina.

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Concluding remarks
Institutional preschool education in Bosnia and Herzegovina, in addition to
its long tradition, is still socially marginalised and faces difficulties that require
systematic solutions. First and foremost, it is necessary to continue and accelerate
the initiated reform processes aimed at improving and developing quality in all its
dimensions—administrative, structural and process. In this context, it is necessary
to complete the processes of enactment and adoption of legal and subordinate acts
that regulate the activity of institutional preschool education, harmonised within
the Framework Law (Okvirni zakon … 2007). A particularly significant step towards
obtaining quality is the empowerment of the educational professionals to develop
curricula that is focused on the child and to develop curricular documents that are
based on the unique principles and standards established by the Framework Law
(ibid.) and the Common Core (Sporazum o zajedničkoj jezgri … 2009) for work in
preschool institutions in B&H, as well as to develop guidelines to implement the
development and learning outcomes. A condition that needs to be achieved is the
encouragement of professional autonomy and the motivation to explore one’s own
practice, empowering educational professionals through the processes of critical
reflection, self-evaluation, evaluation and creation of developmental plans at the level
of an institution, a team and an individual. In this context, the initial education of
the educators and the continuous vocational advancement and professional development of all employees in preschool education should be based on the principles
of lifelong learning and the defined standards for the job of an educator, as well as
the standards of work quality in preschool education. In addition, it is necessary
to provide accessible, methodologically unique trainings that are based on needs,
and to maintain continuity for all professionals dealing with children. In order to
achieve adequate training standards, it is necessary to establish a certification and
accreditation system for educator training.
It is also necessary to develop system mechanisms for the development and
quality assurance of preschool education in B&H and a unique model for the process of self-evaluation of preschool institutions, coordinated with the dominant
theoretical and methodological approaches and European guidelines at the level
of educational policies (Recommendation of the European ... 2010, pp. 4–5; Evaluating quality in ... 1999, pp. 89–92), in accordance with the expressed needs of the
practitioners and the needs of the society as a whole.
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