In 2021, California launched the Universal Prekindergarten program, requiring public schools with kindergarten to provide free, high-quality pre-kindergarten to all four-year-olds. As we approach the culmination of this effort—when all four-year-olds are eligible in the next school year—it is a good time to evaluate how the program is going. Last week, PPIC’s policy director and senior fellow Laura Hill and project assistant Maya Lawton discussed their new report on TK enrollment—highlighting differences in participation across districts and student populations, as well as insights from school districts.

TK has grown dramatically since expansion began in 2022. In 2023–24, it served over 150,000 children statewide out of an estimated 215,000 eligible—more students than ever before. But take-up was about 70%, lower than the 83% pre-expansion peak. This trend has continued in the most recent school year—the 178,000 enrolled comprise only 65% of those eligible. Moreover, the overall TK participation rate has fallen from its peak in 2019–20 by about 12 percentage points. At 16 and 18 percentage points, this decrease is even larger among Latino children and Dual Language Learners.

Hill indicated several factors that may account for these trends. Overall, California families have many choices for early education, and some may not wish to send their younger four-year-olds to elementary school. Another barrier might be the availability of slots in local schools. All districts with kindergarten are required to offer TK, but some do not comply. Even in districts with TK, a child’s local school may not have it, or enough slots.

Nevertheless, Hill remarked that it is possible for take-up rates to increase. “The Department of Education has recently reminded districts of their obligation,” she said, “but there’s really no mechanism at this point to enforce it.” Citing other programs around the country, Hill continued “It’s really rare…even when [TK is] universally available…for all students to be participating.”

The expansion has brought about many challenges for districts and schools. Developmental needs of younger four-year-olds are vastly different from those nearing five. One district administrator described the first week of school with the younger cohort as “shark week” because of increased biting incidents. Younger children need quick access to bathrooms and may need help with toileting. They also need play spaces that allow them to develop gross motor skills and burn off energy so they can adapt to quieter classroom learning.

Incorporating younger four-year-olds into TK also requires a new approach to curriculum—play-based rather than the more traditionally academic. Lawton shared that successful implementation depends on leadership capacity. She said expansion was more difficult in districts where leadership had little experience with early childhood education. “But districts [with] clear partnerships between teachers and leadership were able to collaborate better … to meet the age-appropriate needs of younger four-year-olds,” she noted.

Hill and Lawton both agreed that going forward, statewide take-up rates could improve as districts and schools continue to add TK to their programs. To build on the progress schools and districts have made, they will need ongoing support with facilities, staffing, professional development, and curriculum. Moreover, integrated data across the various childcare, preschool, and transitional kindergarten programs would also allow policymakers to understand the impact of TK on children and families as well as providers. The final year of expansion will no doubt reveal more insights into how it is serving California’s families with preschool children.