Californians Support Universal Preschool, but Take-up of Transitional Kindergarten Is Uneven

Although the newly finalized state budget withholds funding for early education facilities, California's expansion of Transitional Kindergarten (TK) eligibility to all four-year-olds will continue. Voters will weigh in this fall on a bond measure that would provide such funds-and meanwhile, Californians remain supportive of universal preschool. According to the April 2024 PPIC Statewide Survey, about two in three adults and about three in four public school parents (77%) think the state should fund voluntary preschool programs such as TK, which offers a year of schooling for four-year-olds through the public K-12 system. However, take-up rates for TK are lagging.

There is a partisan divide on state funding for voluntary preschool programs, with eight in ten Democrats (80%) and about six in ten independents (61%) in favor, compared to 41% of Republicans. Majorities across racial/ethnic, age, education, income, gender groups and across regions say voluntary preschool programs (such as TK) should be funded. Support is strongest among African Americans, Latinos, adults ages 18 to 34 (74%), and Los Angeles residents (74%). Support is similar among women and men overall-but among public school parents, women (85%) are far more likely than men (69%) to say it should be funded.

The strength of this support makes sense, considering how important Californians believe preschool is. According to the April survey, about three in four adults-and over eight in ten public school parents-see attending preschool as at least somewhat important to a student's success in kindergarten through 12th grade (adults: 43% very, 34% somewhat; public school parents: 54% very, 31% somewhat). More than seven in ten Californians have expressed this view since PPIC began asking this question in 2006.

Most partisans today say preschool is at least somewhat important, but Democrats (54%) are far more likely than Republicans (29%) and independents (34%) to say it is very important. Majorities across demographic groups and regions see preschool as at least somewhat important; however, the share saying it is very important reaches a majority only among African Americans, Latinos, and Los Angeles residents. Overall, women (47%) are somewhat more likely than men (39%) to say preschool is very important; among public school parents, men and women are similarly likely to say this.

California began offering TK in 2012-13, with limited eligibility; the state began a gradual expansion of eligibility in 2022-23, and all California four-year-olds will be able to enroll by 2025-26. In 2023-24, the number of TK students increased dramatically (by approximately 35,000), partially offsetting enrollment declines in other grades. However, when we estimate TK take-up rates based on population-age data, we find that only 60% of the nearly 260,000 eligible four-year-olds were enrolled; take-up rates were above 70% from 2017 to 2019 before the pandemic.

Of course, TK is not the only preschool option for California's four-year-olds. Families may choose to enroll or keep their children in subsidized prekindergarten and child care such as Head Start and the California State Preschool Program (CSPP), or unsubsidized preschool and care. But TK is free, connected to the K-12 public school system, and taught by credentialed teachers. Should we expect take-up to be higher?

Factors that may shape enrollment choices include whether a TK program is close to a family's home or a sibling's school, has flexible hours, and/or has a strong reputation among parents. In addition, parents may have a range of preschool curriculum options, with difference balances of play and educational time. Although California TK programs are encouraged to align with the California Department of Education's California Preschool Learning Foundations (PLF), no curriculum is mandated, nor has the PLF released updated guidelines to account for TK expansion. Parents may also prefer smaller classroom sizes. Whereas TK classrooms must have a 1 to 12 adult-to-student ratio, the average preschool classroom for four-year olds has a 1 to 8 ratio. However, by 2025 the student-to-adult ratio in TK classrooms will be reduced to 1 to 10.

If TK is to become universal, it will be important to prioritize the quality and accessibility of TK programs across schools and districts. The next phase of expansion will need to address district implementation challenges, including an ongoing national shortage in early educators and aides, as well as limited funding for school infrastructure and facilities development. PPIC will continue to monitor family participation in TK programs by tracking take-up rates and district implementation statewide.