Financing for equity in pre-primary education
1. Education resources to subnational governments
2. Education resources to institutions
3. Education resources to students and families
4. Social policies and family support programmes
Introduction
Key financing indicators (UIS Data)
In the Netherlands, the official entrance age to pre-primary education is 3. Two years of free pre-primary education are granted in legal frameworks. One year of compulsory pre-primary education is granted in legal frameworks. The net enrolment rate for pre-primary for both sexes was 92.01% in 2022.
Governance
Primary education is organised into eight groups, and the first two groups, Group 1 and Group 2, are considered part of pre-primary education under the International Standard Classification of Education (ISCED) level 0. These groups cater to children aged 4 and 5 and focus on early learning and development. Under the Dutch system, however, these groups are considered part of the primary education system. Education is mandatory for all children from the age of 5 (Group 2), but all children in the country have the legal right to education from age 4 (Group 1). Primary education is funded by Ministry of Education, Culture and Science.
Early childhood education (VVE) in the Netherlands refers to a subsidised support measure to prevent or reduce educational disadvantages. VVE is offered in both childcare centres (for students aged 2.5-4) and primary schools (for students aged 4-5).
Tuition-free status
Two years of free pre-primary education are granted in legal frameworks.
1. Education resources to subnational governments
For children aged 4-5, pre-primary education is integrated into the first two years of primary school. To support vulnerable students at this level, municipalities in the Netherlands receive additional funding through the educational disadvantage policy. The government distributes these funds using disadvantage scores calculated by Statistics Netherlands (CBS), which assess the risk of educational disadvantage among toddlers and primary school pupils. These scores are based on background characteristics of parents, and CBS aggregates them at both municipal and school levels. Municipalities with a high number of children at risk of educational disadvantage qualify for extra funding, with allocations increasing proportionally to the severity and prevalence of disadvantage. This targeted funding aims to support vulnerable students and reduce educational inequality.
Municipal governments may use allocated funds to address educational disadvantage for students aged 2.5-5 through the Gemeentelijk Onderwijsachterstandenbeleid (Municipal Education Disadvantage Policy) to set up early childhood education (VVE) programmes. These programmes target children who may be at risk of educational disadvantage in the future. These funds are primarily used to support the development of Dutch language skills, though municipalities determine target groups and activities for themselves. Municipalities can also use funds to provide help if children cannot participate with their peers due to a lack of income.
2. Education resources to institutions
Education for students in Groups 1 and 2 (aged 4-5) in the Netherlands is centrally funded and governed by the Primary Education Act. Since 2023, primary schools have received funding on a per-pupil basis, determined by student enrollment on February 1 of the previous year. The central government distributes funds directly to schools to cover personnel costs, current expenditures, and capital expenditures. Since 2012, primary schools have also received a performance budget for specific activities such as teaching of language and numeracy skills, science and technology, and staff development.
Per the Onderwijsachterstandenindicator (Educational Disadvantage Policy), the government allocates additional funds to schools with a higher percentage of students deemed to be “at risk of education disadvantage”. Disadvantage scores are calculated by Statistics Netherlands (CBS) and are based on five factors: the educational level of both parents, the mother's country of origin, her length of stay in the Netherlands, the average education level of all mothers at the school, and whether the parents are in debt restructuring. Schools with a high concentration of children at risk of educational disadvantage receive additional funding, with the amount increasing as the number of at-risk students and their level of disadvantage rise.
Schools can receive additional funding to support children of newly arrived families in the Netherlands. This is targeted primarily toward asylum seekers who need support with the Dutch language. Schools with four pupils in this category can apply for additional funding.
3. Education resources to students and families
For children between the ages of 4 and 5 who are considered at risk of educational disadvantage, municipalities may offer additional support, such as free or heavily subsidized places in early childhood education (VVE). This is particularly targeted at children who need extra help with language development or other skills. Municipalities work with childcare providers to identify eligible families and ensure that their children can access these services.
4. Social policies and family support programmes
The kindgebonden budget (Supplementary Child Budget) is a programme of the Dutch Ministry of Social Affairs and Employment is a regular payment provided to parents or guardians of children up to the age of 18 and can help cover essential expenses like clothing, food, and education. Eligibility depends on the family’s income and requires parents to be registered and residing in the Netherlands in most cases.
For children from low-income families, the government also provides a childcare allowance called kinderopvangtoeslag. This allowance primarily helps cover the costs of childcare, but can also be used to support enrollment in a VVE programme.
