Section 6: Children ServedChapters
Policymakers must decide who to serve, and how to best serve those with the greatest need. This section includes information on how states make decisions about program eligibility, how to integrate state prekindergarten programs with federally mandated programs for children with disabilities, and how to best serve children who are learning to speak English. 6.1 Universal or targeted programsUniversal PrekindergartenUniversal prekindergarten means that all children of a particular age have access to the state’s prekindergarten program. Attendance is voluntary, not compulsory, but all families who wish to enroll their children are able to do so. In order to achieve the goal of universality, states must ensure full funding of programs and expansion of prekindergarten services to all geographical regions with families interested in participating.1 As of late 2003, Georgia is the only state that meets this definition of offering universal prekindergarten. New York passed legislation in 1997 with the goal of achieving universality by 2002, but funding constraints have limited the program to less than half of eligible children. Both Georgia and New York gave precedence to at-risk children in the roll-out of their prekindergarten programs. Universal programs significantly expand access to prekindergarten, even for low-income children who may be eligible for other preschool programs, such as Head Start. They also are more likely to win ongoing political support than programs targeted solely to disadvantaged groups.2 The drawback of universal programs is their cost, especially when the program is free to all families. Although not all families will choose to enroll their children in prekindergarten, states should assume that between 60 percent and 70 percent of eligible children would enroll. In Georgia, approximately 60 percent of eligible four-year-olds attend state-funded prekindergarten (an additional 10 percent attend Head Start).3 In estimating the cost of universal prekindergarten in Illinois, the Governor’s Task Force on Universal Access to Preschool assumed 60 percent of four-year-olds and 50 percent of three-year-olds would attend. 4 Targeted PrekindergartenTargeted prekindergarten programs offer services only to children with particular characteristics, or risk factors, associated with high rates of school failure. Some states will target services to all children in a geographic region where there is a high percentage of children with particular risk factors. Each state has a different list of risk factors for targeting resources, and some states define multiple risk factors but let local governments or school districts determine which ones to prioritize for services. Examples of risk factors used by states include that the child:
Risk factors may be used to guarantee service, or may merely prioritize eligibility based on available resources. Some states require families to have multiple indicators of risk, because children with multiple risks are much more likely to have difficulty in school.5 Every state already has two targeted prekindergarten programs: Head Start and the IDEA Part B preschool program for children with disabilities. States funding a third targeted program will want to ensure it builds on these existing programs, reaching more of the target audience instead of creating competition among programs. When resources are limited, targeted prekindergarten programs offer the benefits of preschool education to those children in greatest need. The evidence of the effectiveness of prekindergarten programs is also most solid for children at risk of school failure. However, public opinion polling shows that targeted programs receive less political support than universal prekindergarten programs because many middle-class families (and especially those who vote) believe their children should also have access to high-quality prekindergarten programs. 6 For More InformationGolin, S., A. Mitchell, and M. Wallen. The Cost of Universal Access to Quality Preschool in Illinois. Washington, D.C.: Institute for Women’s Policy Research, 2003. Available at:
Hicks, S.A., K.S. Lekies, and M. Cochran. Promising Practices: New York State Universal Prekindergarten. Ithaca, N.Y.: Cornell Early Childhood Program, 1999. Available at:
Lekies, K., and M. Cochran. Collaborating for Kids: New York State Universal Prekindergarten 1999-2000. Ithaca, N.Y.: Cornell Early Childhood Program, 2001 Schuster, L. Steps to Universal Prekindergarten Guidebook: A Resource for Superintendents, School Boards, Prekindergarten Policy Advisory Boards, Teachers, Early Childhood Professionals, Policymakers, Parents and Citizens. Albany, N.Y.: State Communities Aid Association, 1998. Web ResourcesEducation Commission of the States: Database of eligibility requirements in each state:
1
R. Schumacher, M. Greenberg, and J. Lombardi, State Initiatives to Promote Early Learning: Next Steps in Coordinating Subsidized Child Care, Head Start, and State Prekindergarten (Washington, D.C.: Center for Law and Social Policy, 2001). Available at: 2
A. Raden, Universal Prekindergarten in Georgia: A Case Study of Georgia’s Lottery-Funded Pre-K Program (New York: Foundation for Child Development, 1999). Available at: 3
The Child Care Partnership Project, A Guide to Successful Public-Private Partnerships for Child Care (Washington, D.C.: U.S. Child Care Bureau, 1999). Available at: 4
S. Golin, A. Mitchell, and M. Wallen, The Cost of Universal Access to Quality Preschool in Illinois (Washington, D.C.: Institute for Women’s Policy Research, 2003). Available at: 5
A.F. Sameroff and B.H. Fiese, “Transactional Regulation and Early Intervention,” in Handbook of Early Childhood Intervention, Eds. S. J. Meisels and J. P. Shonkoff (New York: Cambridge University Press. 1990): 119-49. 6
For a synthesis of polling research on early care and education, see: [ Return
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