Running head: UNIVERSAL PRESCHOOL

Policy Engagement: Universal Preschool within the United States

Niccole L. Erickson
Central Michigan University

Universal preschool is a fairly new concept that seeks to provide educational equity to all
young children. Several countries across the globe have already adopted this policy. Within the
United States, support for universal preschool is beginning to develop. Views of this concept
vary at the local, state, and national level. Having developed so recently over the last few
decades, however, the field of early childhood education is quickly gaining momentum across
the states.
POLICY RESEARCH
There are many causes and reasons for early childhood education. Providing universal
preschool is one way to channel support to the field of early learning. Many different approaches,
some of which remain unexplored, can be seen as effective when it comes to supporting
universal preschool. Depending on the cost of the particular approach, unique benefits will
unfold. These benefits come in the form of democratic values, equity, and diversity.
Causes and Reasons

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Early childhood is the foundation of all education. It is the beginning of social-emotional,

physical, and cognitive development. When countries rely on kindergarten as the starting point of
education, they miss the importance of the scientifically proven benefits of early childhood
(High, 2008). Causes for concern arises when a nation fails to see return on investment. Such is
the case when it comes to the support of early childhood. Nationally, state-wide, and locally,
there are many reasons to support universal preschool.
The United States as a whole views early childhood in a positive light and has even
provided one source of support for low-income families. Several states have managed to provide
some support to preschool programs to all families, regardless of income, within their borders.
As a whole, however, the country has not quite established a framework for this new policy. The
nation, which expresses its concern for improvement within the field of education, is beginning
to focus more toward early childhood. State by state, the country is progressively leaning toward
a universal preschool system.
The term universal preschool can be used interchangeably with state preschool
considering this is the only level of true support for the time being. Many states have taken the
liberty to develop some sort of publically funded preschool. These are the leaders of the country
that are providing the experiential data that will be used to support universal preschool in the
near future. Already these states are producing positive results as a natural consequence to
increased support for young children. There is now only time and room for advancement of this
policy.
Depending on which state, many school districts are finding it only logical and natural to
connect preschool to the already existing K-12 system. Some, of course, are only provided to atrisk children, but are still in existence, improving the outcomes of the educational system in
place. Publically funded preschool is also a way to provide parents with work support within
communities. Working-class families are able to utilize the access of quality preschool while

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enabling parents to work outside of the home. There is a high demand for this across the country
as many parents are seeking jobs to support their families.
Many attempts at government-funded programs have been in place for years, but are
limited to low-income families. Because these programs only support a portion of U.S. citizens,
the expansion of these programs is not supported by research (Armor, 2014). Of course, the
children from low-income families can benefit from preschool, but are not the only children
affected by the issues of school readiness (Barnett, Brown, and Shore, 2004). Research leans
more toward a development of an educational system that supports preschool for all families.
Whether or not the United States eventually decides to support universal preschool as a nation,
the science behind early childhood education supports the success for academic achievement, no
matter the income level of families. There is plenty of groundwork to be done, but the nations
future is at stake.
Different Approaches
Universal preschool, as mentioned, has several different viewpoints, resulting in different
approaches to providing support. The most established form of national support comes in the
form of government subsidies, such as Head Start or Great Start. The most common form of
preschool is privatized or tuition-based, which several can be found on college campuses or
connected to Christian or charter schools. Aside from expanding subsidies or forcing families
into choosing preschool over income, another path can be made. Providing publically funded
preschool, connected to the already existing K-12 system is yet another approach to universal
preschool.
The United States currently provides government subsidized prekindergarten for families
that fall below a particular income threshold. Head Start, for instance is a program that provides
services for low-income preschool-aged children (Henry, Gordon, and Rickman, 2006). Along
with Head Start, another program, Early Head Start, provides services for children and parents,

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beginning with prenatal care until age three (Armor, 2014). According to Kirp (2015), Since
2004, Tennessee has offered state-subsidized prekindergarten, enrolling more than 18,000 of the
states neediest 4-year-olds (p. 1). States like Tennessee have provided one approach to
universal preschool, but other options remain.
Many other states provide privatized preschool, but at a much costlier rate. For example,
Michigan is home to many early childhood centers, several of which come with a price. Tuitionbased preschool makes up the majority of choices in which parents have to send their children.
These centers often vary among quality and cost. Depending on the families income level,
parents are often forced to utilize lower-quality centers. Michigan, is beginning to focus on a new
type of support which provides preschool along with the K-12 system and is beginning to realize
that its entire structure needs to be reformed (Michigan Department of Education, 2015). Several
other states, such as Florida, Georgia, Maine, New York, Oklahoma, Pennsylvania, and
Wisconsin, have already adopted policies in support of universal or state preschool. Different
approaches are used from state to state. One state, Georgia, provides preschool to all 4-year-old
children, regardless of income (Henry, Gordon, and Rickman, 2006).
Clearly stated, the two approaches that are most solidly set in place thus far, Head Start
and privatized programs, are extremities of the universal preschool policy idea. Scrivner and
Wolfe (2002) stated,
Although several states have implemented programs that incorporate one of these aspects
of universality, no state currently provides a comprehensive full-day, full-year program
designed to both focus on school readiness for its four-year-olds and provide work
support for their parents. (p. 11)
The idea of universal preschool has many details, which can result in many different approaches.
These approaches offer support to separate groups of individuals within the country. Universal
preschool, as a nation, would offer the same support to all groups.
Costs and Benefits

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Of course, this change would require much funding and plenty of time for any country to
begin the process. As a nation, the United States needs to take into consideration the long-term
benefits produced by the costs of early childhood education. There is no room for instant
gratification when it comes to education. Although the return looks to improve the future, the
investment into universal preschool looks to be costly for the United States. Fortunately, several
of the states have already blazed a trail for the rest.
The cost of a government-subsidized program is inevitably paid by the public. As
mentioned previously, each state already supports socioeconomically challenged families to a
certain point (Herman-Smith, 2012). The United States seems to be trying to support preschool.
The requested budget for prekindergarten programs during fiscal year 2016 is said to be $750
million in order to support funding for current government subsidies (U.S. Department of
Education, 2015). Benefits of these programs are seen by many of the low-income households
within the United States, but not by the families with an income level above certain thresholds.
New America (2015) stated,
Because child care subsidies, Head Start, and many state-funded pre-K programs are
open only to families with low incomes, many working families above the incomeeligibility threshold must turn to private, tuition-based pre-K programs and child care
centers for the care and early education and development of their children under the age
of 5 (p. 4).
Tuition based preschool can be viewed as the complete opposite of the programs which
receive funding from the government. Many of these programs are privatized, providing services
to the community at large, but are extremely expensive. The cost of these programs depends on
the quality of service. Some less expensive programs are typically offered in the homes of
licensed citizens and act as more of a daycare or babysitting home. On the other end of the

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spectrum, more expensive programs can be found on college campuses or connected to

Christian-based or charter school systems.
The approach to universal preschool usually is viewed as being supported through the
public, connected to the K-12 system. Although public funding for preschool typically comes
from the government for programs such as Head Start, other forms of funding, such as from
states and special education programs provide support (New America, 2015). There seems to be
a significant amount of funding for several different areas of early education, but inconveniently
funneled to an abundance of programs, causing frustration and confusion. By creating a universal
path for funding to support the early education of its citizens, the United States can make a more
direct impact on society. All it will take is reorganization and time.
The benefits of early childhood education remain the same while the costs seem to rise.
Lasser (2011) stated, We acknowledge that universal preschool will be costly, but we believe
that not providing high-quality, developmentally appropriate, culturally-sensitive preschool from
high quality teachers will be even costlier (p. 173). The cost of not providing quality preschool
results in lower achievement levels, repetition of grades, and an overall unpreparedness for
kindergarten. Children need to learn from highly qualified teachers; highly qualified teachers
need to be paid accordingly. Providing funding to support early childhood is a bigger picture than
just providing programs to low-income families. Again, early childhood education is expensive,
but can be seen as a lasting investment.
Democratic Values, Equity, and Diversity
The United States is continuously in competition with other countries, especially when it
comes to education. The values of education within the U.S. seem to be reaching toward a higher
achievement rate. Equity among the states is being addressed, but equality is necessary to give
everyone a chance to succeed. The U.S. is continuously growing as a diverse nation, so the

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effects of universal preschool should mirror those of its cultural identity. Universal preschool
possesses the ability to do all of this.
The values of citizens within the United States vary, but seem to reach an agreement
when it comes to education. Many states are pushing standards down to earlier grades in order to
achieve more. While this act is certainly producing outcome, the well-being of the students is at
risk. The Michigan Department of Education (2015) stated, Michigan must establish and
education system that grants indelible rights for all stakeholders to succeed a system focused
more on what is best for children and their learning (p. 1). There are more stakeholders involved
with early childhood education than just administrators, policy makers, and teachers. Parents of
young children, families, and every U.S. citizen, with or without children benefit from the
contributions of these preschoolers sooner or later. By respecting the rights of all involved in the
process, democratic values can be upheld.
The majority of the universal preschool debate stems from the difference between equity
and equality. Government subsidized programs, such as Head Start, offer equity by providing
families with financial need. Universal preschool offers equality by providing the same support
to all families. Naturally, each family differs from the next, resulting in different needs, but when
providing support, any country needs to take into consideration the overall needs of society. If
the United States is pushing for better academic achievement, then equity and equality have
blurred lines. Providing public preschool to all families, regardless of their socioeconomic status,
seems to be the only way to boost the outcome of early childhood education. There needs to be a
level of support that is equal to all, but also provides the equity needed.
The U.S. is growing culturally at an exponential rate, so its education system should be
consistently reforming to those needs. There is an overlap of a framework in which education
affects both individual children and society while supporting a diverse culture (Lasser, 2011). As
the U.S. looks to become more of the melting pot it has been deemed, more and more families

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will be in need of support for their culturally diverse children. These children will become the
future of our society, which is an asset to anyone living in the United States, with or without
preschoolers of their own. By providing families with equal and fair opportunities to bring
education to their children, the U.S. can support an idea that is in the best interest of all its
citizens.
It will take great understanding for all U.S. citizens to come together to achieve the goal
of a better educational future for their country. There is a need to replace the desire for instant
gratification for an understanding of long-term investment. U.S. citizens must consider all
children, even if they do not have any themselves, as assets to society. By encompassing the
values, equity and equalities, and cultural diversities among across the states, universal preschool
can pave a road to a more successful future.
Overall, the idea of universal preschool can come across as refreshing, yet daunting at the
same time. Many stakeholders must come together to connect the avenues that will provide way
for this system-wide reform. By weighing the costs and benefits, professionals should see that
this opportunity for investment will only boost the economy at all levels local, state, and
national. There is much work to be done in order to establish a foundation for this national
change. Some states have already taken the liberty to do so, but it is up to the rest to join the
cause.
CONTEMPORARY POLITICS
The contemporary politics of universal preschool are still somewhat developing. Major
actors and coalitions, at the national, local, and state level work to support early childhood
education in many different forms. They are aware of the political barriers that may prohibit new
policies from taking effect. The major actors and coalitions also work, however, to provide
opportunities for change. By working together, all involved have the ability to create a seamless
path for policy to evolve.
Major Actors and Coalitions

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At the national level in the United States, several coalitions are involved in educational
policy, including the United State Department of Education which governs education at large for
the entire country, the National Association for the Education of Young Children which
advocates for the support of early childhood education across the United States, and the National
Coalition for Campus Childrens Centers which supports childcare centers around the nation that
are located on college campuses. Several individuals were contacted in regards to universal
preschool purposefully for this report. A senior educator and a policy advisor from the U.S.
Department of Education were contacted via telephone. Early childhood center directors and
members of the National Coalition for Campus Childrens Centers from Illinois, Maryland,
North Dakota, and South Carolina responded to questions via email. All individuals contributed
their thoughts to universal preschool at the national level.
During a personal phone interview, a senior educator within the Office of Postsecondary
Education at the U.S. Department of Education agreed that problems can be solved with
universal preschool, but mentioned that as a nation, we will need to look for champions for
lobbying and talking to congress and providing legislative support for parents (U.S. Department
of Education Senior Educator, personal communication, January 21, 2016). In speaking with a
senior policy advisor within the Office of Early Learning, a branch of the Office of Elementary
and Secondary Education at the U.S. Department of Education, it was mentioned that as a nation,
we will need funding from Congress and increased support at the state level from legislators,
governors, and mayors. It was added that we as a country have to be willing to make that
investment. Some people believe in universal preschool and some do not believe that it is their
federal responsibility. Getting support from both sides of government democratic and
republican, will be our biggest challenge (U.S. Department of Education Senior Policy Advisor,
personal communication, February 2, 2016).

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Through emails, a center director within the state of Illinois and member of the National
Coalition for Campus Childrens Centers (Illinois Childcare Center Director, personal
communication, February 4, 2016). A second center director, this time within the state of
Maryland and, again, a member of the National Coalition for Campus Childrens Centers stated
that universal preschool is one way to help the overall development of children and many
working parents in need of child care (Maryland Childcare Center Director, personal
communication, February 3, 2016). A third center director, this time within the state of North
Dakota and, once again, a member of the National Coalition for Campus Childrens Centers
mentioned that universal preschool would ensure every childs readiness for kindergarten (North
Dakota Childcare Center Director, personal communication, February 10, 2016). A fourth center
director, this time within the state of South Carolina and, once again, a member of the National
Coalition for Campus Childrens Centers highlighted the unsureness that universal preschool
would address quality issues, focusing on the developmentally appropriate practice (South
Carolina Childcare Center Director, personal communication, February 3, 2016).
Focusing on Congress, as some of the interviewees mentioned, the topic of universal
preschool remains largely supported by government-funded programs. Burke (2009) stated,
As Congress considers plans to create a new federal program to encourage states to
implement government-funded universal preschool, policymakers should consider all the
available empirical evidence from preschool programs. A broader examination of
research evidence from existing preschool programs casts doubt on supporters claims
that new spending on universal preschool programs will yield meaningful long-term
benefits for students (p. 11).
This is apparent to most, but an obstacle to the reality of universal preschool. If the U.S.
seriously wants to take the lead among world economics, high-quality preschool needs to be
normalized (Arne Duncan, 2015). The push for universal preschool is becoming stronger.

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At the state level, such as that in Michigan, coalitions such as the Michigan Department
of Education, which supervises education at large across the state, and the Michigan Association
for the Education of Young Children, which advocates for the support of early childhood
education across the state work to support early childhood education. Other major actors such as
state senators and state representatives lobby for the general public opinion on educational
policy. These coalitions and major actors collaborate to provide the best outcomes for the states
educational system. One individual responded to a request for an interview. A Michigan state
representative was contacted via telephone.
During the personal phone interview, the state representative from Michigan mentioned
that collection of data could be a possible barrier. The idea of Early Childhood Education is so
new, that there is just not enough longitudinal study to support the idea of universal preschool
(Michigan State Representative, personal communication, January 22, 2016). Literary research,
however, suggested that universal access to quality early childhood education is recommended to
better support the state of Michigan (Michigan Department of Education, 2010). Further
statements suggested that with reforming the educational system, Michigan needs to have a goal
to provide universal preschool for all three- and four-year-olds (Michigan Department of
Education, 2011). It is quite transparent that there are differing viewpoints even within individual
states.
At the local level, such as that of Mecosta County, coalitions like the Intermediate School
Districts, which govern several local school districts, support early childhood education. These
coalitions also offer services to the public, such as training and professional development. Two
individuals were contacted regarding the interview. A center director and member of the National
Coalition for Campus Childrens Centers was emailed. A board member from a Michigan

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Intermediate School District provided thoughts on the topic through a face to face personal
interview.
In an email, the center director confirmed that there are varying definitions of universal
preschool. Some think three- and four-year olds as opposed to just four-year-olds, some believe
in half day programs opposed to five full days per week (Michigan Childcare Center Director,
personal communication, January 20, 2016). The board member from the Michigan Intermediate
School District mentioned that buildings and other facilities might form a barrier when it comes
to the reform of universal preschool. Several options and opinions would need to be discussed
with parents and other local members (Michigan Intermediate School District Board Member,
personal communication, January 21, 2016). The Great Start Readiness Program, a program
similar to that of Head Start, was highlighted on the website for the Michigan Intermediate
School District as being able to be accessed through every school district, free to eligible
students, and provides high quality, developmentally appropriate services for kindergarten
preparation (Michigan Intermediate School District, 2016).
Political Barriers and Opportunities for Change
Overcoming barriers to create a positive change for early childhood education is in the
hands of many different people. Those people have the power to experiment on the programs that
are already in place, assess the data from those experiments, interpret said data, and, finally,
promote the change to the public. Other people have the power to influence the nations opinion,
one town at a time. Incorporating the change will come with time. Investing in the change is
what most people are unable to see past.
By working together to ensure all possible resources and approaches have been
investigated, our country can make a difference in the future of these young children, thus
creating a better future for society as a whole. While there do not seem to be any specific major
actors or coalitions that work against early childhood education, several individuals opinions

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appear to be doubtful of the outcomes of universal preschool. Fortunately, however, those

opinions are outweighed by other major actors and literary research. Just like any policy change,
there will be obstacles on the path to success. As long as the stakeholders remain positive and
active, any negativity or problems can be overcome.
POLICY REPORT AND RECOMMENDATIONS
The best way to accomplish universal preschool at both the state and local levels should
be to offer free, voluntary preschool for all four-year-olds additionally to the government-funded
programs that are already in place. Not only would this policy change support young children in
their education, but it would create a fair opportunity for all children, no matter their families
economic status. The state of Michigan, beginning with the local school districts, should propose
a way to support this solution both locally and statewide. Universal preschool contains benefits
that are grounded in research, is a logical solution to many issues within the United States, and
offers plenty of past and continuing data to support it as the preferable approach.
Policy Instruments
The policy instruments that are apparent within the idea of universal preschool include
capacity building and system change (Fowler, 2013). Capacity building will ensure the funding
that it will take to implement universal preschool into existing K-12 systems. System change will
support the policy by providing personnel and delegating responsibility to those best fitted to
serve in early childhood education. These two policy instruments will need to go hand in hand in
order to make a seamless transition into the world of universal preschool. This policy change is
considered to be a system-wide reform and will require much support.
The first policy instrument needed for this change to take place is Capacity building.
Capacity building would come in the form of not necessarily transferring money per say, but
including preschool within the budget of the K-12 system already in place. The investment of
this money will not be the only policy instrument needed to see universal preschool through to

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the end. This policy change requires much more long-term work. Personnel responsible for
public school will need to be reformed to support the new addition.
The second policy instrument needed is a system change. A system change would be the
main focus of this new policy. There is a demand for preschool, but existing staff within the K-12
system do not yet have the responsibility of incorporating it into the bigger picture. By recreating
the K-12 system to truly implement preschool, more responsibility would fall on the shoulders of
state departments of education as well as the U.S. Department of Education. A system change
that includes the implementation of universal preschool across the U.S. will revolutionize the
nations educational system to reflect positive change as an outcome to responses for the demand
of early childhood education.
Suggested Approach
By implementing this system-wide reform, work must begin at the state level, beginning
with local school districts. Some states that have not yet implemented universal preschool are
aware that there is a demand. Michigan, for instance, has already begun to establish a plan for the
long-term future of its educational systems reform. In order to make Michigan a top 10
education state in 10 years, Michigan Department of Education (2015) has made a goal to
Provide every child access to an aligned, high-quality P-20 system from early childhood to
post-secondary attainment through a multi-stakeholder collaboration with business and
industry, labor, and higher education to maximize lifetime learning and success (p. 1). The
future of the United States lies in the hands of these young children, therefore, this is the right
moment to pursue the approach of a state prekindergarten program.
States that have already developed a form of universal preschool and states like Michigan
must work together to ensure the forward movement of this new idea. Existing government
funded programs should remain in effect at first, but not expanded. This will provide room and
funding for voluntary, all-inclusive, public preschool to take hold. Adding preschool to each local

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school districts existing framework should be the first step and will include early childhood
education in the overall funding. The next step would be to fade out existing subsidized
programs as the demand for them dissipates. The final step would be to decide whether or not
universal preschool should remain an option for parents to enroll their children, depending on the
results of data produced by future experimentation with the new programs that are established.
Educational systems must remember to assess the new policy and make use of its results.
Community and district culture will form the idea of universal preschool as it is
implemented. Again, feedback from newly applied programs will serve as the tool for change
when necessary. For instance, several communities seem to almost survive on government
subsidies, so it may take certain areas longer to implement the change of removing Head Start
programs later in the future. Some communities are already thriving and would have no problem
implementing universal preschool. Some families within those communities, however, may feel
forced to bring their children to preschool. The culture of these communities is the main reason
this policy implementation will take a while to become truly universal. It is a system-wide
reform, but also an idea that will possibly and probably frustrate personnel involved with
government subsidized preschool and stay-at-home parents who will take longer to see the
possibility of future improvement.
By implementing universal preschool, student achievement will only improve. Already in
states like North Carolina, Michigan, and Oklahoma have reported lasting gains (Kirp (2015).
Educators must remember that within early childhood education, the beginning steps of every
childs educational career, student achievement comes in the form of listening, taking turns,
respecting others, and student engagement (Lasser, 2011, p. 170). By instilling these skills at the
forefront of the nations education, society will produce much more quality citizens in the future.
Stakeholders must invest now in order to see quicker results.

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To make that investment at this time, it would be best to utilize strategies or programs
that are already in place and effective. The example of Georgia Pre-K, as well as other states
versions of universal preschool would be a starting point for states that have not yet developed
any program of their own. Upcoming programs should be formed on the foundation of data
produced by quality research, but also maintain a uniqueness that supports the diversity of the
surrounding community. High quality should be strived for within universal preschool, but no
attempts at a one size fits all approach should be made (Barnett, Brown, and Shore, 2004). Each
state will be somewhat different from the next, but the same idea of universal preschool will
serve its citizens the same.
Criticism and Rebuttal
The obvious criticism of universal preschool is the validity of the existing supportive
data. The two most popular forms of preschool support, Head Start and other subsidized
programs, have not yet been fully compared (Henry, Gordon, and Rickman, 2006). Other forms
of data, produced from examination of these programs on individual bases, however, do exist. A
more specific study was implemented to investigate the benefits of children spending more than
the average amount of time in Kindergarten. It was found that children who spent more time in
kindergarten increased their chances of repeating grades in the future and did worse on the tenth
grade standardized tests (DeCicca and Smith, 2013). While those particular results may point to
evidence of a failed attempt, it does not discredit the rest data that successfully promotes
preschool. Many researchers admit that the data that is available is often difficult to access, but is
still available to support the policy.
There is overwhelming evidence that preschool provides a positive impact on student
achievement, especially school readiness. When based on an understanding of the well-being of a
child, quality programs are effective (Duncan and Gibson-Davis, 2006). Provided with universal
preschool, children will have their needs met sooner, enabling a stronger path through their

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educational career. A number of contemporary preschool programs, evaluated within the last ten
years, produced positive results, supporting the idea of universal preschool (Armor, 2014). This
is the data that is needed to support the idea of universal preschool.
Given the rebuttal of the previously mentioned criticism, data is indeed available and
supportive. Although there may not be a large quantity of comparative data between government
funded programs and public programs, valuable data in support of high quality preschool
remains in abundance. By using the available data, policy makers can improve education for all
early childhood. Existing programs can be improved and new ones can be born. Universal
preschool will create better educational outcomes in students for years to come.

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References
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Burke, L. (2009). Does universal preschool improve learning? Lessons from Georgia and
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Illinois Childcare Center Director. (personal communication, February 4, 2016)

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