What is Universal Pre-K?
Universal preschool and/or "pre-k" (pre-kindergarten) aka UPK has become a buzzword for national and local politicians to toss out when discussing how to help children succeed. But what does it mean?
When touring prospective families at my previous centers, I would guide them classroom by classroom, highlighting a few key points. Upon reaching their child's age-appropriate classroom, I would provide more detailed information. One of my standard talking points for both preschool and pre-kindergarten classrooms was, "We offer a universal pre-k program here as well. I'd be happy to provide more information when the time comes." More often than not, I would receive polite yet somewhat blank stares from families who would respond with, "Oh that'd be great, yes absolutely." This confusion isn't the families' fault—it stems from two factors: it's a relatively new program, and it has been evolving continuously since its inception. The implementation varies significantly across states, and even the term "universal" doesn't actually mean "all-inclusive" when discussed in research circles.
At its simplest, universal pre-k is any state-funded preschool program in which age is the only criterion for eligibility. It’s a international and national movement supporting the use of public funding to provide preschool education to all families.
Let's broaden our scope to define universal pre-k in its widest context. At its simplest, universal pre-k is any state-funded preschool program where age is the only criterion for eligibility. It's an international and national movement supporting the use of public funding to provide preschool education to all families. The broad goal is to provide quality preschool education across all socioeconomic backgrounds before children enter kindergarten, bolstering their academic and social skills and giving them a "jump start" on their educational journey, thereby increasing the likelihood of academic success throughout their school years.
As it currently stands, 44 states have passed legislation to advance publicly funded preschool. Of these, 17 states claim to be implementing universal pre-k programs, actively working on the legislation that was passed. However, according to The Education Commission of the States (ECS), only 7 states (Florida, Iowa, Oklahoma, Vermont, West Virginia, Wisconsin, and Colorado) and the District of Columbia truly offer universal pre-kindergarten based on the criteria that all 4 year-old residents are eligible, all school districts must offer such programs, and sufficient funding is provided by the state. Remember when I mentioned that "universal" doesn't necessarily mean "all"? According to the National Institute for Early Education Research, a program with just 70 percent of 4 year-olds enrolled can be considered to have universal status.
A (very) brief history of Universal Pre-K
This will be brief, I promise! You've already received enough information to induce a headache. The concept of universal pre-k originated in Georgia in 1992 with a pilot program for state-funded preschool. It proved successful, gained public support, and in 1995 became the nation's first state-funded preschool program. While "public support" is a broad generalization, enough people backed it to secure a foothold, attracting attention from other states and national politicians.
The movement emerged because high-quality pre-kindergarten education was financially inaccessible to most parents, despite clear evidence of its benefits for children. The solution: publicly funded high-quality programs. This approach received federal recognition in 2009 through President Obama's Race to the Top initiative; a $4.35 billion Department of Education competitive grant designed to encourage innovation and reforms in K-12 education.
As indicated by the limited number of states that have fully implemented universal pre-k, significant support is still needed from diverse stakeholders: business leaders, educators, child advocates, philanthropists, law enforcement, and healthcare professionals to effectively lobby state legislatures. See? Brief.
How does UPK work?
On a national scale, programs provide early education in the year before kindergarten, with some programs also serving 3 year-olds. Funding comes through various federal, state, and local mechanisms. Unlike traditional public education, many states allow private and faith-based childcare centers to receive pre-k funding.
In Colorado's Universal Pre-K (UPK) Program, all 4 year-old children can receive up to 15 free hours of high-quality preschool in their pre-kindergarten year. Some families may qualify for additional hours based on certain factors. Children with Individualized Education Programs (IEPs) should work with their Special Education Administrative Unit to enroll with specific accommodations.
In Colorado's Universal Pre-K (UPK) Program, all 4 year-old children can receive up to 15 free hours of high-quality preschool in their pre-kindergarten year.
Quality varies across states due to different funding levels per child. In Colorado, UPK providers must meet higher standards, with teachers completing courses through the Colorado Shines Professional Development system before their center is recognized as an official UPK provider program.
One of the first questions I usually get is, “I don’t get the 15 hours thing?” I guess that’s more of a statement rather than a question, but I digress. The 15 hours aren't necessarily a separate block of time but are integrated throughout the child's day using high-quality curriculum. Activities like alphabet puzzles, baking using measuring tools, gardening, and reading out loud are just a few examples of quality UPK education in action. As a curriculum specialist, I’ve observed that kindergarten readiness was woven throughout the entire day, not just limited to specific hours. Teachers with appropriate skills ensure quality education for all children in their class.
Without federal standards for pre-kindergarten education, quality control falls to state and local governments. While this creates some variability, most pre-kindergarten teachers excel at preparing children for kindergarten. In Colorado, advocates are expected to observe UPK programs during the 2025-2026 school year to ensure quality standards are met.
The benefits of Universal Pre-K
In my humble opinion, all children, regardless of socioeconomic status, should have access to quality early childhood education. I don't think that's a radical idea. In fact, many people support equitable and quality early childhood education across the board.
A comprehensive 2005 study revealed that every $1 invested in quality preschool education generates an extraordinary $12.90 return on investment.
Universal Pre-K offers profound and far-reaching benefits that extend well beyond early childhood, creating positive ripple effects throughout individuals' lives and across society as a whole.
Neurological Development and Lifelong Learning Foundation:
High-quality preschool environments provide crucial cognitive stimulation during a critical period of brain development
This stimulation supports the formation and strengthening of neural pathways that form the foundation for lifelong learning capacity
These early experiences literally shape brain architecture in ways that enhance future learning potential and cognitive flexibility
Landmark Research— The Perry Preschool Project:
The groundbreaking Perry Preschool Project, one of the most respected longitudinal studies in early childhood education, documented remarkable outcomes for participants including:
Enhanced health outcomes— participants showed better overall physical and mental health trajectories throughout life
Superior social and behavioral outcomes— children developed stronger social skills, emotional regulation, and positive behavioral patterns
Economic advantage— as adults, program participants achieved significantly higher income levels than the control group who did not receive preschool education
Addressing Educational Inequity:
Universal Pre-K serves as a powerful equalizer, providing children from socioeconomically disadvantaged backgrounds access to resources and opportunities that help narrow the achievement gap before it widens
The Tulsa Evidence— Georgetown University study (infographic below):
TPS (Tulsa Public Schools) pre-k participants were 9 months ahead in pre-reading skills than their counterparts
7 months ahead in pre-writing skills compared to non-participants
5 months ahead in pre-math skills compared to non-participants
TPS pre-k students were more attentive and less timid than their peers, creating a stronger foundation for classroom success
Economic Returns— Investment with Exceptional Value:
A comprehensive 2005 study revealed that every $1 invested in quality preschool education generates an extraordinary $12.90 return on investment
This represents one of the highest returns of any public investment, literally putting money back into communities and taxpayers' pockets through reduced remedial education costs, lower crime rates, higher workforce productivity, and increased tax revenues
Immediate Family Financial Relief:
In Colorado, families who participated in the Universal Pre-K program saved an average of $600 per month
This translates to approximately $6,000 annually in reduced childcare expenses
These savings can significantly improve family financial stability, reduce parental stress, and allow for investment in other areas of child and family well-being
Universal Pre-K represents a rare opportunity where moral imperatives for educational equity align perfectly with sound fiscal policy and evidence-based educational practice.
Other considerations for Universal Pre-K
The research on program outcomes is limited, which is understandable given the relative newness of these programs. In an effort to present a balanced view:
Dale Farran and colleagues at Vanderbilt University discovered that by the end of 2nd grade, children who had attended a state-funded pre-k program in Tennessee were falling behind their peers
The researchers struggled to accept these findings but worked to identify possible causes
A significant observation was that they studied pre-kindergarteners housed within elementary school buildings
This matters because teachers in many states are certified for teaching students from prekindergarten through grade 5 (or even pre-K-8), with minimal training specifically focused on early childhood development
While no single study provides definitive answers, it highlights how the effectiveness of universal pre-k depends on both learning environments and teacher qualifications
Financial and Access Considerations:
I won’t pretend to be an economist, but universal pre-k programs will increase taxes, though the specifics vary by location
A person smarter than me wrote about the tax increases
Some states, like Colorado, partially fund these programs through taxes on tobacco and e-cigarettes
In states without universal eligibility, waiting lists can create situations where disadvantaged children compete with higher-income children for limited spots
Some demographics maintain that pre-kindergarten education decisions should remain entirely with parents, making the concept of UPK irrelevant to them
Quality Concerns:
The National Institute for Early Education Research provides baseline quality standards including maximum class sizes, minimum professional development requirements, and other benchmarks, but these are recommendations, not mandates
Without federal mandates on quality standards, UPK programs vary significantly, and uneven funding allocation across states results in quality disparities
Some critics worry that federally funded programs might allow politicians rather than educators to determine curriculum content
TL;DR — Universal Pre-K simplified
(TL;DR — too long; didn’t read)
If you're thinking, "Emma, I love you, I want to support you, but you talk a lot," here's the condensed version:
Universal pre-k is a concept most people can support. We all want children set up for long-term success, and quality UPK programs can deliver this. The main challenges are securing federal funding and bipartisan support for nationwide implementation.
Some issues need resolution (funding allocation, classroom environments, teacher qualifications), but long-term research demonstrates significant benefits. Researchers face challenges evaluating recent programs due to COVID-19 pandemic disruptions, yet quality evidence of UPK success remains compelling.
I encourage you to check if your early childhood education center offers UPK. Colorado residents can find information here. For other states, visit your state's Department of Education website.
Last but not least… I pivoted and instead of starting to read The Highly Sensitive Child as I mentioned last week, I received the notification that my hold of The Whole Brain Child: Revolutionary Strategies to Nurture Your Child's Developing Mind by Daniel J. Siegel and Tina Payne Bryson was ready so I opted to read that while it was available.
Thanks for reading,
Emma
Sources: (Apologies to my high school AP English teacher but I’m not doing a bibliography)
Quick tip: For paywalled research papers linked below, emailing the authors directly often gets you free PDF copies!
https://www.npr.org/sections/money/2021/05/18/997501946/the-case-for-universal-pre-k-just-got-stronger
https://www.npr.org/2022/02/10/1079406041/researcher-says-rethink-prek-preschool-prekindergarten
https://psycnet.apa.org/record/2022-18712-001
https://cdec.colorado.gov/universal-preschool-colorado
https://ijccep.springeropen.com/articles/10.1186/s40723-023-00112-9
https://www.edweek.org/teaching-learning/which-states-offer-universal-pre-k-its-more-complicated-than-you-might-think/2023/01
https://nieer.org/yearbook/2024
https://nieer.org/sites/default/files/2024-01/Georgia_2015_rev1.pdf
https://ies.ed.gov/use-work/resource-library/report/evaluation-report/race-top-implementation-and-relationship-student-outcomes
https://www.decal.ga.gov/prek/history.aspx
https://www.ffyf.org/resources/2024/05/nieers-annual-report-shows-uneven-progress-for-state-preschool/
https://cehd.uchicago.edu/?page_id=958
https://www.naesp.org/resource/why-pre-k-is-critical-to-closing-the-achievement-gap/
https://feed.georgetown.edu/access-affordability/children-enrolled-in-universal-pre-k-programs-more-likely-to-attend-college-georgetown-research-shows/
https://www.cdsplab.org/tulsa-seed-study2
https://www.brookings.edu/articles/is-universal-preschool-worth-it/
https://triadbrightfutures.org/wp-content/uploads/2023/08/UPK_CCCAP_Comp_Final.pdf
https://www.theguardian.com/commentisfree/2021/may/01/republicans-threatened-biden-universal-daycare-week-in-patriarchy