Universal Preschool in Colorado: Expanding Access and Addressing Challenges

Colorado's Universal Preschool (UPK) program, a landmark initiative stemming from House Bill 22-1295 passed in 2022, aims to provide access to preschool for every child in the state during their year before kindergarten. Known as UPK, the program also extends to some three-year-olds, marking a significant step towards early childhood education. While celebrated for increasing preschool access, particularly for four-year-olds, the program faces challenges in providing adequate support and clarity for all families, especially those with specific needs.

The Promise of Universal Preschool

The UPK program operates by providing participating preschool providers with a stipend to cover tuition costs for children enrolled in UPK slots. This approach has propelled Colorado to seventh place nationally in providing preschool access to four-year-olds, a notable improvement attributed to the implementation of UPK.

Expanding Access to Full-Day Programs

Data indicates a rise in the utilization of full-day positions, underscoring the importance of these options for families. The full-day option benefits families and children as it increases continuity of care and access to service and instructional time for children who may benefit most from preschool experiences. According to the 2022 CPP legislative report, enrollment into the full-day program under CPP was consistently increasing over the past five years. That's almost 40 percent more children who received a full-day program under UPK.

Combining Resources for Affordability

Denver Preschool Program (DPP) tuition credits can be combined with other programs like Colorado Universal Preschool, Head Start, and Colorado Child Care Assistance Program (CCCAP) for maximum savings. Credits and Colorado Universal Preschool (UPK) create more opportunities for affordable preschool for every family.

Challenges and Areas for Improvement

Despite its successes, the transition to a universal model has presented several challenges.

Reduced Support for High-Needs Children

An analysis of the state’s pilot program revealed that while more four-year-old children are being served, the pool declined of three and four-year-old children with the highest needs who qualified for additional support. The shift from the targeted Colorado Preschool Program (CPP) to UPK has resulted in fewer resources for some of the state's most vulnerable four-year-olds, who previously received more hours and funding to attend full-day pre-K under CPP. CPP’s mission was to serve children most in need, covering tuition for qualifying families based on family, economic, or developmental factors until the program was replaced in 2023 by UPK. If the funding for CPP is directed towards a new universal model, then a component of that universal model needs to have some of the features that CPP did as a targeted program.

Inequitable Access for Three-Year-Olds

Confusion persists regarding subsidies, especially for three-year-olds. Three-year-olds are not part of the Universal Preschool Program because CDEC sends funds to school districts for them to manage. School districts decide which three-year-olds - beyond those with an Individualized Education Plan (IEP) as mandated by the state - they will serve. This has meant that families with students in full-day programs have to find a way to make up the difference between the subsidized hours and the full-time tuition.

Navigating the Application Process

Families are accustomed to visiting preschools in-person, at open houses and other events, and working directly with the school to enroll. The online application “was a very different process, and is still a huge learning curve,” said Lora White, an administrative assistant for the Cheyenne, Kiowa, Lincoln Early Childhood Council (CKLECC), which represents rural counties in the Eastern Plains. The state’s decision to let school districts decide eligibility has contributed to the confusion.

Limited Options in Rural Areas

Families in less populated areas of the state felt that they had far fewer preschool options for UPK. Child care access, a consistent problem for rural communities, has persisted under UPK. Nonetheless, when comparing larger counties to smaller counties, enrollment rates were about even. Enrollment in UPK for larger counties stood at 0.66% of the population compared to 0.71% in smaller counties. While the number of preschool options may be fewer, it did not seem to deter families from enrolling in UPK and receiving free preschool hours in more remote areas of Colorado.

Voices of Parents and Educators

Parents and educators have voiced concerns about the program's implementation and its impact on families with specific needs.

Tinsley Ore's Experience

Tinsley Ore, a parent on Medicaid raising three-year-old twins diagnosed with autism, has experienced firsthand the challenges of navigating the UPK system. She has not received nearly enough state support this year to meet her family’s needs. Ore lives in northeast Denver and has only one UPK option, Highline Academy Northeast, available to her kids in the Green Valley Ranch neighborhood. She had to quit stable employment as a social worker to become a full-time caretaker. She finds it hard and frustrating to not have more options or support with transportation. This year, her three-year-olds receive about 10 hours of free preschool a week. Under the former state preschool model, Colorado Preschool Program (CPP), they would have been eligible for 20 free hours. After the pandemic, Ore said, her children need the socialization and cognitive stimulation that preschool offers even more.

Camilla's Financial Struggles

Camilla, a mother of a three-year-old at preschool at Monroe Elementary, a school in a predominantly Hispanic area, faces financial strain due to unclear funding options. The state might cover 10 hours of free preschool to select three-year-olds, but funding is not guaranteed if the child does not have an IEP, and the school has not made it clear what other funding options are available to Camilla, if any. As a parent of three kids who works full-time, Camilla chose to enroll her son in a full day anyway because she doesn’t have the option of staying home with him.

Ellen Emmerling's Loss of Funding

Ellen Emmerling is a single mom of three in Hugo - a town of 798 people in the Eastern Plains. Her five-year-old son, enrolled at the Country Living Learning Center, originally qualified for the maximum number of 30 hours through UPK. Then she was notified by the state that she was no longer eligible for additional hours beyond the base-level 15. She currently receives about $120 monthly towards her child care bill. Previously, she also qualified for The Colorado Child Care Assistance Program (CCCAP).

The Importance of Early Childhood Education

Research consistently demonstrates the significant impact of early educational support on child development, particularly for children from underprivileged backgrounds. Cassandra Johnson, a co-founder of the National Black Child Development Institute Denver chapter, now the Black Child Development of Colorado, emphasizes the critical importance of early childhood development, stating, “That over 95% of the brain is developed by age five is really a critical piece of information to have.”

Addressing Concerns and Ensuring Equity

To address the concerns raised by parents and educators, several steps can be taken:

Increased Transparency: Provide clear and accessible information about eligibility criteria, funding options, and application procedures.
Targeted Support: Implement targeted programs to support children with the highest needs, ensuring they receive the resources necessary for their development.
Expanded Access: Increase the availability of preschool options, particularly in rural areas, to ensure all families have access to high-quality early childhood education.
Streamlined Application Process: Simplify the application process and provide assistance to families navigating the system.
Equity Considerations: Prioritize equity versus equality to ensure that the most vulnerable children receive the support they need to succeed.

Resources for Families

Families seeking information and support regarding Universal Preschool in Colorado can access the following resources:

Live Support: Live support is available 8 am - 8 pm Monday through Friday to support families with Colorado UPK questions at 303-866-5223.
Helpdesk: Use the helpdesk for assistance.
FAQ Page: Check out the most frequently asked questions about Colorado Universal Preschool on the FAQ page.
Universal Preschool Portal: Work with the chosen provider to complete an application in the Universal Preschool Portal.

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