What is a good kindergarten? How to support teachers, whose work is often hidden but invaluable to society? What does the transition to Estonian-language education really mean and how to do it in a way that everyone – children, families and teachers – feel valued and included?
We spoke with Kaspar Kreegimägi, the head of early childhood education in the city of Tartu, to take a look at the present, outline the future and understand the big picture behind major reforms, everyday work and human values.
This interview takes us honestly and deeply into topics that affect every child, teacher and family – from teacher support and leadership models to the role and meaning of kindergartens in a rapidly changing world.
In Kaspar's room in the Tartu city government, the first thing that caught my eye was a table with countless different and exciting cups.
Kaspar, what catches my eye in this room is a large and colorful collection of cups. Is collecting cups one of your hobbies?
No, it's not actually my personal collection. It's true, there are a lot of cups here. They've just accumulated here over the years. The meeting room is next to us, and there used to be a kitchenette where colleagues and partners from various kindergartens and schools would leave souvenirs and cups. Since it's currently undergoing renovations, it was most convenient to bring these cups to my office. So they're more of a symbol of our collaboration, not my hobby.
But aside from the cups, do you have any personal hobbies that you do in your free time?
Yes, I'm drawn to nature. I also really like gardening. Gardening is something calming and balancing. I have several cats, a dog, and even a snake at home. Animals and plants create a kind of quiet harmony that I really appreciate compared to office work. Although I wouldn’t call it a hobby in the classical sense, it is definitely my way of recharging. I also sometimes use my lunch break to visit the Tartu Botanical Garden. The Botanical Garden is located right next door and helps me keep my balance.
How did you end up becoming the head of early childhood education in the city of Tartu?
Education has always been close to my heart. I studied special education and worked with children with special educational needs at Tartu Hiie School. From there, I moved to the Ministry of Education and Research, where I spent almost ten years in total. First in supervision, later in the field of general education.
When the structure there changed and my job ended, a competition opened in the Tartu City Government for the position of early childhood education specialist. My former colleague Riho Raave recommended me for the competition. I accepted the offer, participated in the competition, and that’s how I ended up here. To be honest, I was even surprised when I was elected, because I thought that coming from the ministry to the city/local government level was somehow a step back. But in fact, it was a big step forward – direct contact with kindergartens, the opportunity to see real impact and contribute to the system from within.
How did your work in Tartu begin and how did you get settled into the field of early childhood education?
I remember very well that immediately after being elected, I was sent to several kindergartens for a kind of induction internship. I visited the institutions, talked to the managers, observed the daily work. All of this helped me understand how the world of kindergartens really works. I had experience in education policy and supervision, but it was the practical side of what it means to run a kindergarten or teach young children that required knowledge and experience.
I value this very much, because I still believe that good decisions are only made when you are really in contact with the system. And it has been ten years now.
What motivates and inspires you the most about this job?
It's the fact that there's never a standstill here. Changes are constant, in legislation, systems, needs. There are reforms, new projects, developments. When it seems like you could take a breather for a moment, a new topic comes up, for example, the renovation of a kindergarten or changes in personnel policy. It keeps you fresh and alert.
In addition, I have a great team, both in the department and in the wider Tartu early childhood education network. It's important that you don't work alone, but that you have someone to think, plan and sometimes discuss with when things get difficult. All of this gives you strength and motivation to keep going.
You mentioned reforms and legislation. Kindergartens across Estonia are implementing the new Early Childhood Education Act. Have the city of Tartu – and you personally – been involved in the preparation of this act?
Yes, I have been involved in this process at various stages. As a representative of the city of Tartu, I have been able to speak out, comment and share the municipality's experience and practical observations.
I must acknowledge that the Ministry of Education and Research has been quite open to involvement in this process – not only in terms of the law itself, but also in shaping the related implementing acts and, for example, the requirements for the learning and growth environment. It is precisely this implementation perspective that is important, because as a municipality we must ensure on a daily basis that the law is actually implemented.
It is of course clear that not all proposals may make it into law, but the fact that they are listened to and taken into account helps to create a better understanding. It is often the case that the drafters of the law may not foresee all the details or bottlenecks. Bottlenecks appear precisely when you start thinking about how something will work in practice. And in such places we can help with our experience.
I am really pleased that we have been able to think and speak out about this development. This in turn also increases the local willingness to implement changes.
What other good practices characterize Tartu's approach to managing early childhood education?
One of our important strengths is an open and trust-based management culture. Our goal is not to create a feeling in managers that they are under constant control, but rather the opposite. We give them the opportunity to act independently, decide and take responsibility. We do not force them to coordinate every small step, but value professional autonomy. At the same time, we try to always be there for managers – to support, advise and, if necessary, guide.
I do not offer this trust and support only as a field manager, but we have a complete team that works in the field of early childhood education. This includes the chief specialist of early childhood education, the financial manager of early childhood education, the analyst and other colleagues who communicate directly with institutions and their managers. We have a firm principle: no question is too small or stupid not to ask about it. And managers know that the answer will come quickly, thoroughly and with goodwill.
At our regular meetings, we do not focus only on problems – on the contrary, it is there that ideas and developments are born, which are later implemented. This kind of partnership between the owner and the institution is our great value. We don't let things "go sour". If there are signs that something is difficult somewhere, we immediately discuss the issue and react.
Are there any plans to build a new kindergarten in Tartu in the near future?
When it comes to new municipal kindergartens, there are currently no new construction plans in the near future. We do have several future perspectives in the development plan and city plans. For example, in the case of new development areas, but the reality is that the number of children in Tartu is falling. And this is not just a Tartu trend, it is a nationwide trend.
Our focus today is not on building new kindergartens, but on renewing and improving the existing network. Many kindergarten buildings were built decades ago and need thorough renovation to offer children modern learning and growth environments. We have already worked in this direction with several institutions, but it is clear that each project takes time and money. It is important that the renovation of kindergartens continues in the coming years.
Has there been a situation in the city of Tartu where a kindergarten has had to be closed because the birth rate has dropped?
We currently have no plans to close any kindergartens completely. However, we have had to close individual groups where the number of children has decreased significantly. This is not a tragedy. On the contrary, it provides an opportunity to think about new solutions.
For example, if a group in a building remains empty, the freed up space can be used for individual work with children with special needs, staff counseling, or meetings with parents. Many of our older kindergartens were not originally planned to have enough help rooms, but in fact this need exists. Therefore, although closing groups may seem negative at first, it can actually open up new development opportunities and solutions.
And of course, we cannot predict 100% what will happen exactly, but one thing is clear – the birth rate is low, especially in recent years. When today's toddlers reach kindergarten age, we must take into account that we will have fewer children than before. This in turn forces the entire system to respond flexibly and plan wisely.
If the number of children decreases, how will it affect private kindergartens? Are they particularly vulnerable in this situation?
This is a very good and legitimate question. When we talk about the decrease in the number of children, it must be understood that it affects the entire early childhood education network – both the municipal sector and the private sector. In the city of Tartu, we have a clear principle: every parent must have an equal opportunity and freedom to choose a kindergarten suitable for their child, whether it is a municipal or private kindergarten.
To ensure this, we have harmonised the place fee, which means that in the vast majority of kindergartens, a parent pays the same monthly fee, regardless of whether they choose a private kindergarten or a municipal kindergarten. This creates a level playing field and the parent can make their decision purely based on location, methodology or other suitability.
But the truth is that if there are fewer children, it also means new challenges for the private sector. We have seen that some smaller childcare facilities have already closed their doors, either reduced their groups or ceased operations. It is not always just a financial issue. Changes, such as the new Early Childhood Education Act, may simply be too burdensome for some smaller providers, or they may perceive the changes as too difficult.
It is important to understand that the private sector played a very important role in the years when we had a shortage of kindergarten places. Private kindergartens helped to balance the situation and their existence is still important today. However, now that the number of children is on a downward trend, it is natural that some of the burden will decrease and the private sector will also have to rethink its activities accordingly.
In the city of Tartu, we do not view municipal and private kindergartens as two competing camps. Rather, we see them as parts of one comprehensive system, where the goal is to ensure high-quality and accessible early childhood education for all children – regardless of the form of ownership of the kindergarten. And changes, such as demographic decline or changes in the law, affect everyone equally. Adaptability and cooperation are the key words here.
What do you think about the idea that early childhood education in Estonia could be completely free, with no place fees at all?
This is a very important and worthwhile discussion that should definitely not be held only at the level of one municipality. When the topic of abolishing place fees was raised in Tallinn in the summer, it received a lot of attention and also influenced the public discussion of other municipalities. However, the impact of such a change is much broader. This should be a considered strategic decision at the national level, not just a matter of local politics.
Of course, from the parent's point of view, a free kindergarten place is very attractive. But we must not forget that nothing is really free. This cost simply comes from the taxpayer's pocket or as cuts somewhere else. The place fee is the parent's own contribution to early childhood education. It also gives them a sense of responsibility and participation and helps them understand that high-quality early childhood education needs resources: support specialists, developments, a good environment, motivated staff, etc.
If we say that everything is free, where does the money come from? If it is removed from the system, it could mean, for example, a reduction in the quality of support services or staff. In the end, the child suffers. This does not mean that we should not think about how to reduce this cost for families in need of support – social support systems exist and in Tartu, families in need can apply for support in terms of both place fees and food allowance if necessary.
But it is important to understand that place fees are not a large part of the actual cost of kindergarten. The majority is covered by the local government anyway. Abolishing place fees throughout Estonia would require a very clear analysis, a financing model and an understanding of what will be better from this – whether for the child, the teacher or the system as a whole. Until these answers are available, a completely free model does not seem reasonable.
In Tartu, we have kept place fees stable throughout the last election cycle and this has not been a central issue for parents. It is important that the system is fair and supports those who are really struggling. And that is what we have tried to do.
Teacher succession and burnout have been topics of discussion in Estonia for a long time. How does the city of Tartu support teachers and help prevent burnout?
Becoming an early childhood teacher is not something that happens by chance – this job requires a sense of mission and inner commitment. Fortunately, the number of early childhood education majors in higher education is quite high, and new teachers are being trained.
However, it is important to understand that no teacher works alone. A kindergarten team is a whole, where each member – whether a teacher, assistant teacher or support specialist – influences the quality of work and the working environment. If this team does not function as a unified value space, no amount of external support will solve the situation. So the first and most important support comes from daily cooperation within the group and within the institution – from how it is managed, how it communicates and how it maintains a mentally supportive environment.
As for the city of Tartu as the administrator, our role is to support professional development and cooperation, to provide an environment where teachers do not feel alone. One very good example is the networking of early childhood education teachers and support specialists in Tartu, which is organized, for example, by HEV coordinators and networks of support specialists and teachers' subject associations. Through them, regular meetings, experience sharing and training take place, where teachers receive support and ideas from colleagues from other kindergartens.
The system operates on three levels:
In-house support - management, cooperation and work culture.
City-based support - networking, training, coordination.
National framework - for example, salary policy, laws and professional recognition.
In our city, the goal is to create an environment where teachers are not left alone with their questions and concerns - whether they are a young beginner or an experienced pedagogue. This does not mean that we do not have room for development, but open communication, proactive problem solving and systematic support are in focus. We try not only to keep teachers in the system, but also to enable them to develop and feel proud of their work.
How has the city of Tartu gone with the transition to Estonian-language education? What has been the approach and what are the current challenges?
The city of Tartu's approach to the transition to Estonian-language primary education has been clearly systematic and well-thought-out. When the transition to Estonian-language education was implemented at the national level, the city decided right from the start that this process needed to be approached strategically, not haphazardly. To this end, a specific action plan was drawn up, which mapped out the starting positions and defined the next steps.
It was also important to include a scientific perspective and independent experts. The city of Tartu collaborated with the University of Tartu and the team of Professor Birute Klaas-Lang, who also conducted research and interviews with boards of trustees and parents. This helped to understand the concerns of parents and to design interventions in a conscious and targeted manner. In addition, repeat research was conducted, which made it possible to assess how the transition has actually been implemented and what problems or areas for development have emerged.
In total, this transition affected two schools and three kindergartens in Tartu. In the case of kindergartens, it was important to emphasize that, unlike schools, where the transition takes place by grade, Estonian-language instruction in kindergartens is implemented in all groups at once. This meant a particularly strong focus on personnel issues.
The biggest challenge was related to personnel – especially language skills. If there are not enough Estonian speakers in the group or they are not ready to communicate with children consistently in Estonian, then it is difficult to provide high-quality education. All three kindergartens that switched to Estonian-language instruction have been committed to this: they have engaged in in-service training for staff, recruited new employees if necessary, and supported existing employees linguistically and pedagogically.
Another strength of Tartu has been that the institutions have not been left alone. The city has supported, communicated, asked for feedback, and responded. Thoughtful communication has also played a very important role: the purpose and content of the transition have been explained to parents, helping them understand how it affects children and how parents can help.
The number of children whose mother tongue is not Estonian continues to be high, which requires daily linguistic and, if necessary, special pedagogical support. However, in general, it can be said that the city of Tartu has managed this process well, thanks to cooperation, systematic planning and a research-based approach.
What has been the cooperation of the city of Tartu with universities in the field of early childhood education?
The city of Tartu has had multi-level and substantive cooperation with universities over the years, which has supported the development of early childhood education on both a strategic, substantive and practical level. There has been particularly close cooperation with the Ethics Centre of the University of Tartu – it has been a long-term and value-based partnership, through which support has been received in addressing several important topics, from educational values to curriculum renewal and the teacher's code of ethics.
The role of universities, especially the University of Tartu and the University of Tallinn, is not limited to large projects. These are partners who are accessible on a daily basis, through whom it is possible to offer teachers and leaders in-service training and involve expert knowledge. For example, researchers from the University of Tartu have participated in the city's information days and discussions, where developments in early childhood education are discussed, including the implementation of the new curriculum.
It is also important that university representatives are involved in joint seminars, where specific topics are explored in depth together with the leaders of the city's childcare institutions. This allows us to enrich the discussion with research-based approaches, share world practices and better understand which directions are more relevant in the field.
Thus, cooperation with universities is not merely formal, but active and substantive. This allows Tartu to implement informed and reasoned decisions in the field of early childhood education and to be one step ahead in developments.
What do you think makes a truly good kindergarten teacher?
A good kindergarten teacher is not just a person with professional knowledge and skills – he or she is a teacher with a heart. For a truly good teacher, this work must be a calling, not just a job. A value-based approach is very important – love for children, care, empathy and the ability to understand the child's needs.
A kindergarten can never fully control the environment in which a child lives at home, but a teacher can create a safe and supportive environment for the child in kindergarten. Often, a child spends a large part of his or her waking hours in kindergarten, which is why it is extremely important who the adults who work with him or her are.
A good teacher is open, friendly, benevolent and does not look down on children. He or she is able to create trusting relationships with both children and their parents. Communication skills are very important – both with children and adults. If a teacher is unable to establish effective contact with parents, misunderstandings and lack of trust quickly arise.
In addition, cooperation skills are also very important. A teacher never works alone, but is part of a group team, where all members must work together for a common goal. And of course, joy and satisfaction from their work, because when a teacher enjoys their work, this is also transferred to the children.
What work organization model is used in Tartu kindergartens. 1+2 or 2+1 system?
In Tartu, the city, as the administrator, has not prescribed a uniform work organization model, but kindergarten leaders can decide for themselves which approach works best for their team and groups. This means that both 1+2 and 2+1 systems can be found in Tartu kindergartens. The choice depends on the kindergarten's own decision and personnel capabilities.
Work organization can also change over time. For example, in situations where someone leaves the staff or it is difficult to find a replacement, the group can temporarily switch to a different work division. Thus, the system is flexible and takes into account the real situation on site. This allows managers to make decisions based on the specifics of the group, the needs of the children and the staff capacity.
Has the city of Tartu discussed a separate work organization model in the context of childcare groups?
Yes, in the case of childcare groups, the city of Tartu has discussed how the staffing requirements should be ensured, especially in a situation where the law allows only one teacher to work in a group. There have been situations where a teacher works alone in a childcare group and the question has been whether and how such a model should work - especially considering that previously it was possible to work there together with a teacher's assistant.
Therefore, the city of Tartu has considered it appropriate to discuss with managers what the "Tartu standard" could look like in this regard in the future. For example, could the minimum allowed by law be consciously higher at our level. Not because the existing staff is not competent enough – on the contrary, childminders and other professionals are often very well prepared – but in order to ensure consistently high quality and strengthen cooperation between professionals working in the group.
What are the two or three most important focus topics for the city of Tartu in early childhood education in the coming years?
The city of Tartu has a lot of ongoing activities and constantly changing details in early childhood education, but if you look at the bigger picture, you can distinguish three or four clear focus areas that will definitely receive the most attention in the coming years (including the next five years):
1. Implementation of the new Early Childhood Education Act and updating the curriculum
This is undoubtedly one of the biggest practical challenges. The new Early Childhood Education Act and the accompanying implementing acts bring with them significant changes, from securing places to pedagogical goals. Kindergartens must also implement the updated national early childhood education curriculum, the impact of which extends to all groups and institutions, including private kindergartens.
This is not just a formal change. It requires substantive work: reviewing curricula, discussing with staff, thinking through teaching methodologies, and taking the results into account when assessing a child's development. This process concerns all children and all employees and must be well managed, systematic and well thought out.
2. Optimizing the network in conditions of declining birth rates
Another major focus is organizing the early childhood education network in a situation where the number of children is on a downward trend. Tartu is no exception in this matter. As in many other municipalities, we must also start thinking about how to ensure reasonable network density, regional accessibility and optimal use of buildings.
This means that not every childcare institution may fill up at the same pace as before in the future, and questions arise about how to use the premises and staff effectively. There are also possibilities under discussion to use the empty group rooms in a smart way: for example, to create smaller groups, cooperate with support specialists or test other special solutions that would increase the quality of education and better meet the special needs of children.
3. Supporting children in need of support and a network approach
Tartu is already an example in Estonia with its system of supporting children in need of support, but this focus is not going away, rather it is deepening. Tartu's goal is to keep support services well accessible and at a consistent level everywhere in the city. This means both maintaining the capacity of specialists and developing kindergartens in a network: sharing experiences, training and forming common understandings in supporting child development.
Early detection and substantive intervention are particularly important. Not only in terms of documentation, but as real support for the child and their family. This also helps to strengthen a smooth transition to school education.
4. Supporting and systemic development of leaders
Although this may not be directly related to children, another important topic is the development and support of kindergarten leaders. The leader is the one who creates culture and attitudes in the team and implements changes. The City of Tartu considers it very important that leaders are motivated, professional and have the opportunity to grow in their role – whether it is through mentoring, joint seminars or continuous cooperation in the education network or participation in study tours both in Estonia and abroad.
Kaspar together with kindergarten head masters in Italy 2024
What role does the City of Tartu see in the ELIIS platform in the future of early childhood education?
ELIIS is already an important tool that helps teachers and leaders organize their daily work better. The City of Tartu sees the role of ELIIS as even broader in the future – primarily as a collaboration and development environment, where solutions are created based on user experiences that help the entire system as a whole. We would like to involve Tartu leaders more in directing developments so that the platform grows with the users. In addition, ELIIS developments could be created in cooperation with several municipalities.
What could a kindergarten in Tartu be like in 30 years? What has changed, what will remain the same?
I dare say that in 30 years, all kindergartens in Tartu will have been completely modernized in terms of the physical environment – this is no longer an issue. All buildings are in good condition and meet the needs of children. However, this does not mean that everything is rigid and unchanging. On the contrary, the kindergarten network is more flexible and even more considerate of parents' work and life arrangements.
For example, in the future, due to changes in work arrangements, families may have more time with their children and the need for long day care will decrease. This may mean that kindergarten days will no longer be so long, but will be divided into special-purpose parts – morning educational support, safe day care, and possible cooperation with hobby education or school.
An important development trend is certainly the deepening of cooperation: even more substantive cooperation with schools, hobby schools, and also with other municipalities and communities. We need to think in a community-based, not bureaucratic way, so that if, for example, a child lives on one side of the street and the kindergarten is on the other (i.e. the street is a conditional separator of two different municipalities), then a reasonable solution based on the child and the family must be found. The child and the family should always be in focus, not administrative division.
Of course, it remains important that every child is a value – no one should go unnoticed and no one should be left behind.
Early detection and support are also becoming increasingly important. Children who come to school unprepared need support earlier. The early childhood education system must be able to notice and intervene before problems accumulate.
If all of this can develop – cooperation, flexibility, accessibility and professional support – then in 30 years the kindergarten in Tartu will be exactly what it should be: modern, child-friendly and supportive of society.
In conclusion
A conversation with Kaspar Kreegimägi left the impression of a person for whom early childhood education is not just a field of work, but a personal value and social responsibility. His warm and honest thoughts about the daily victories and challenges of children, teachers and leaders show how important every decision and change is – not only for the system, but above all for the well-being of the child.
The City of Tartu’s vision for the future of early childhood education is flexible, caring and forward-looking – just what our children and their families deserve. Every child is valuable and noticing every child starts with us.
Thank you, Kaspar, for sharing your time and thoughts. May your sincerity and dedication be an encouragement to all who shape early childhood education in Estonia with their hearts.
