The Importance of Having Data; Or What Would Sherlock Holmes Do?

January 8, 2013

“‘Data! Data! Data!’ he cried impatiently, ‘I cannot make bricks without clay!’”
— “The Adventure of the Copper Beeches” by Sir Arthur Conan Doyle

Sherlock Holmes isn’t the only one relying on data. As anyone in the education world—researchers, parents, teacher, principals, and students—can tell you, decision-making in education is increasingly based on data that shows us what is and isn’t working. So what happens when we don’t have the data we need? Schools that receive federal and state education funds often have specific data reporting requirements, making centralized data collection and analysis relatively convenient. But early childhood education, fragmented across states, localities, programs, and sectors, presents a challenge to the data wonk.

Sherlock Holmes statue

Sherlock Holmes muses on some data points.

Lisa Guernsey and her team at the New America Foundation’s Early Education Initiative have been leading a recent charge to improve data collection. Last month, they released their updated Federal Education Budget Project (FEBP), an impressive database of federal data on education spending and enrollment at the district level. For the first time, FEBP sought to provide pre-K spending data at the state and district level, but noted that many state-funded pre-K programs are not necessarily governed by the same district borders as are K-12. Their policy brief accompanying FEBP’s release sums it up:

“Pre-K and kindergarten data at the local level are labyrinthine and disorganized, hampering any ability to craft policies for equitable access and funding. States must collect more complete and comparable data from school districts and CBOs if policymakers and the public are to understand the state of education for young children in their communities and states.”

So how do we improve early education data? Elementary, my dear Watson.

Improve Existing Information Collection

We don’t just need more data, we need more of the right data, presented in a clear and timely way. The U.S. Census Bureau asks about pre-K participation in its American Community Survey. However, this question suffers from several methodological short-comings: it relies on parent reporting of participation (rather than data from the schools) and includes children ages 3 to 4 enrolled in nursery school or preschool during the previous two months, which may then include children who do not remain enrolled for most of the year, while excluding children enrolled earlier or later. Ultimately, as acknowledged by Alex Holt at the New America Foundation, this question “is so convoluted that we consider the data from it to be effectively useless. Even at the federal level, the U.S. government has no idea how many children are enrolled in pre-K.” Likewise, the information collected on prekindergarten enrollment by the National Center for Education Statistics through its schools survey includes only those children served in programs operated in public elementary schools, without differentiating between 3- and 4-year-olds.  Across all data sets there is considerable uncertainty regarding the extent to which we can accurately identify all classroom participation regardless of the name attached (child care, special education, state pre-K, local public school, Head Start, private preschool, etc.) and even more uncertainty regarding whether we can identify types of programs.  Even separating public and private is difficult because of ambiguities. (For example, many state pre-K programs are operated by private providers, and even Head Start providers are mostly private non-profits.)  So, information is widely available to researchers but it may not answer the questions they’re asking.

Develop Comprehensive Data Systems

The Early Childhood Data Collaborative advocates for coordinated longitudinal early childhood data systems, which are state efforts to collect data to track children’s progress from early childhood and beyond. Their 10 fundamentals of data systems seek to improve data collection and allow stakeholders to link information both longitudinally and to other key programs, while ensuring the system is well-managed, secure, and maintains privacy. Their recent brief on those states who addressed longitudinal data systems in their Race to the Top – Early Learning Challenge (RTT-ELC) applications highlighted important trends, including filling gaps in current data (including information on the workforce) and collaborating across early childhood education systems and agencies.

The very inclusion of data systems as an optional component of RTT-ELC indicates the need for data has been elevated to a place of important within the federal government and hopefully drives continued collaboration among states to improve their current systems.

Fund Quality Data Collection Efforts

Finally, as a field, we need to continue supporting high-quality research collecting data on policies within early childhood education programs. In a piece at The Huffington Post, Lisa Guernsey writes in support of NIEER’s State Preschool Yearbooks, noting:

“The idea behind the yearbooks, Barnett said, was ‘to create an archived data set that would be consistent across the states.’ By making the information available to all, he explained, reporters and policymakers who wanted data would not have to call all 50 states, ‘and state officials could provide information that was comparable to what was provided by the state next door.’ NIEER … sought to halt the spread of misinformation about which states were offering good pre-K programs and enrolling high numbers of children, and which ones weren’t.”

After the Pew Charitable Trusts ended their 10-year investment in the Yearbooks, NIEER has been seeking for a new funder for what’s become one of the most well-respected, well-cited data sources on American early education. Guernsey refers to the times before the Yearbook as “the dark ages,” and it’s hard to imagine going back to a time without it, without media coverage from CBS and NBC and the support of the U.S. Secretary of Education. We’ve seen tremendous growth in not only the media attention on pre-K, but in state-funded pre-K itself: by the 2010-2011 year, nine more pre-K programs were available than in the 2001-2002 year, and quality standards have increased overall even as the Great Recession has worn away at program funds.

Our annual Yearbook publication is a true labor of love, one we’re proud to produce each year, and we’re overwhelmed by the positive response of the early childhood community in supporting and sharing our work. Yet, even this work only covers one of the major segments of the field. We need good data to make the right decisions for early education and the future of America’s students. Only by supporting, collecting, analyzing, and sharing this information with the field will we be able to live up to this advice from the esteemed Detective Holmes: “No, no: I never guess. It is a shocking habit, destructive to the logical faculty.”

– Megan Carolan, Policy Research Coordinator, NIEER

Investing for Today and Tomorrow: Early Learning in the Federal FY 2013 Budget Proposal

February 15, 2012

Starting the week on an exciting note for elected officials, advocates, and policy wonks, President Obama released his proposed budget for fiscal year 2013 on Monday morning. Education was a clear priority throughout the press conference at Northern Virginia Community College in Annandale, Virginia, particularly on preparing students for 21st century jobs by focusing on career and technical skills. As readers of this blog can attest, early education is an important building block in preparing students for a life of learning and earning.

Details of the budget are still being fleshed out, but there seems to be good news for early education in the White House’s proposal, as outlined below.

Department of Health and Human Services (HHS) proposed budget:

  • Department-wide discretionary budget of $76.4 billion, a $0.3 billion increase over the FY2012 level.
  • Head Start and Early Head Start: Set to receive more than $8 billion to serve about 962,000 children and families, which would maintain the enrollment expansion seen in the 2009-2010 program year. The proposal acknowledges that it will support the implementation of the new Head Start re-competition regulations.
  • Child care subsidies:  Additional $7 billion over 10 years to support child care subsidies for low-income children.
  • Child Care Development Block Grant: Additional $300 million to improve the quality of child care facilities.

Department of Education proposed budget:

  • Department-wide discretionary budget of $69.8 billion, a $1.7 billion increase over FY2012 level.
  • Race to the Top (RTT): $850 million for another round.  According to a Department of Education press release, a “significant portion” of these funds would be allocated for an expansion for the Race to the Top-Early Learning Challenge, which would continue under the joint tutelage of the Departments of Education and HHS.
  • Individuals with Disabilities Education Act (IDEA): $472.7 million in Grants for Infants and Families, to provide early intervention services to children birth through age 2 with disabilities and $372.6 million for IDEA Preschool Grants for children ages 3 through 5 with disabilities.
  • Promise Neighborhoods: Proposed increase of $100 million for this competitive grant program that seeks to help high-need communities develop cooperative strategies to improve outcomes for children through both educational reforms and life outside the classroom. Past winners have focused energies specifically on early education as a tool.
  • Investing in Innovation Fund (i3): Requests $150 million for the Investing in Innovation Fund (i3) to build on three previous i3 competitions. The Department’s budget summary only goes so far as to suggest that priority “could be given to projects proposing to improve early learning outcomes.”
  • Institute for Education Sciences (IES):  $30 million in new research and development grants for early learning and elementary, secondary, and postsecondary education.

In addition, the National Women’s Law Center has information on additional federal programs in the FY13 proposal that support families with young children, including the Child and Dependent Care Tax Credit. Of course, not all child care funding goes to children under 5 (though most does) and early education will only be a modest fraction of such high-profile initiatives such as i3, Promise Neighborhoods, and RTT.

Laura Bornfreund, Maggie Severns, and Clare McCann at Early Ed Watch compiled the helpful table below to track changes since FY2011 in some key programs used for early education.


As noted by the New America Foundation’s Key Questions on the Obama Administration’s 2013 Education Budget Request, there are still a number of questions surrounding the place of early education in this budget, including whether the portion of RTT funds earmarked for early learning would be distributed at the state level or district level. They also note that the budget proposal encourages districts to redesign school schedules to better serve students through the 21st Century Community Learning program, though it is unclear so far whether states will be encouraged to apply this to the early grades, such as extending half-day kindergarten into full-day services.

It’s worth noting that a presidential budget proposal is, according to Birth to Thrive, just “the first move in a high-stakes game that will be complicated this year by presidential and congressional politics.” Considering the sharp partisan divisions seen in recent legislative battles, the pressure of the Budget Control Act to cut spending by $900 billion over 10 years, and the high-profile politics of an election year, it is hard to say exactly how much of this proposal will ever see funding. The great strength of the budget proposal, though, is to allow the president to lay out his priorities in greater detail than any speech or campaign ad could. Early education is clearly an administration priority, though perhaps not as high a priority as we would like.  All of us concerned about the future of America’s youngest learners must ensure that elected officials remember that high-quality early education programs are a good economic investment both short-term and in the future.

– Megan Carolan, Policy Research Coordinator, NIEER

Crossing the Finish Line? Race to the Top–Early Learning Challenge Winners Announced

December 16, 2011

The U.S. Departments of Education and Health and Human Services today announced the nine states that will receive funding through the Race to the Top-Early Learning Challenge (RTT-ELC).  Thirty-five states, D.C., and Puerto Rico applied for a share of the $500 million available through this competitive program, which has been the centerpiece of the Obama administration’s efforts on early childhood education. The application process operated on a tight timeline: the program was announced over the summer, applications were due in October, and funds had to be awarded before December 31. Specific budgets will be released after the federal departments have conferred with the individual states.

Congratulations to those nine winners announced today, who may only just be regaining their breath after the mad dash to the application finish line. Those states are California, Delaware, Maryland, Massachusetts, Minnesota, North Carolina, Ohio, Rhode Island, and Washington.

These states are no strangers to the Race to the Top competition – six of the nine have previously been awarded funding through the two earlier rounds of RTT targeted toward K-12 improvement; California, Minnesota, and Washington were the only ones not to be awarded RTT funds previously. All state applications are available online, and reviewer comments and scores are posted as well.

The press conference itself was a who’s who of early childhood education celebrities, including Secretary of Education Arne Duncan and Secretary of Health and Human Services Kathleen Sebelius. Barbara Bowman, co-founder of the Erikson Institute and NIEER Scientific Advisory Board Member, called for “well-rounded programs offering [children] multiple opportunities to learn” while James Heckman, a Nobel Prize winner for his work on the economics of education, heralded the program as “a critical first step in recognizing the importance of the early years…that will promote better education, health, social, and economic outcomes for all…”

RTT-ELC garnered significant attention within the early childhood community—the inclusion of money under the umbrella of Obama’s trademark Race to the Top during such austere budget times was seen as a good sign. While responses to the specifics of the program were mixed, all observers can agree that RTT-ELC represents a big step as state-funded early learning programs are elevated to an issue of national interest.

As a quick refresher from NIEER’s original coverage, the competition was guided by three sets of priorities: absolute, competitive preference, and invitational.
• Absolute: These must be addressed in each state’s application.

  • Early learning and development standards and kindergarten entry assessments
  • Tiered quality rating and improvement system (QRIS)

• Competitive Preference: These criteria will secure “extra” points for applicants.

  • Include all early learning and development programs in the tiered QRIS

• Invitational: These are areas of particular concern for the Departments.

  • Sustained program effects in early elementary grades
  • Encourage private sector support through public/private partnerships

Consideration for the grants relied on four selection criteria focused on aligning a variety of programs; establishing high-quality standards and comprehensive assessments to improve kindergarten readiness; implementing a statewide tiered quality rating improvement system (QRIS); and developing and retaining an effective early learning workforce.

Winners were also selected  based on demonstrated past commitment to early childhood education. Many stakeholders were concerned that this factor would work against states who are only just starting  state-funded early childhood education programs—perhaps an accurate sentiment given that all grant winners already provide state-funded pre-K under NIEER’s definition; Arizona (whose program was cut in the 2010-2011 school year), Hawaii, Mississippi, and Puerto Rico were all denied funding. However, as reflected by NIEER’s rankings on access and spending, as well as quality standards benchmarks, these programs are largely those who have demonstrated a commitment to early education but still have much work ahead of them. Table 1 shows these rankings for the nine RTT-ELC winners, based out of the 40 states that had state-funded preschool programs in the 2009-2010 school year.

Table 1. 2009-2010 NIEER Yearbook Rankings for RTT-ELC Winners

State Access for 4-year-olds Access for 3-year-olds State (including TANF) Spending per Child All Source Spending Per Child Quality Standards (out of 10)
California 23 6 12 18 4
Delaware 32 None served 7 13 8
Maryland 12 None served 21 3 9
Massachusetts 28 14 24 26 6
Minnesota 39 22 5 11 9
North Carolina 20 None served 13 10 10
Ohio 36 19 23 25 2
Rhode Island 40 None served 9 5 10
Washington 31 16 6 12 9

Only five of the nine winners currently serve any 3-year-olds, and only California breaks into the “top ten” for percent of 3-year-olds served; none make the top ten for percent of 4-year-olds served. Spending is a mixed bag. As can be seen by the difference between state per-child spending and all source spending per child, many of these states already utilize multiple funding streams (from federal and local sources) to supplement state funds. The majority of these programs generally meet a high number of quality benchmarks, with both North Carolina and Rhode Island’s state-funded pre-K programs achieving all 10 of NIEER’s benchmarks. On the other side of the coin, though, are both California and Ohio who have struggled to implement high-quality standards through difficult budget times. Both Delaware and Minnesota already partner with their existing Head Start programs to provide early education, which may have served them well in a competition that calls for alignment across sectors.

During the 2009-2010 school year, these programs served a combined 234,566 young learners in state-funded pre-K programs with a total of $1.2 billion in state and TANF funds. However, these states vary widely in terms of the size of their programs and states. Funding from these grants will not be limited only to state-funded pre-K programs, so it is useful to understand how many 3- and 4-year-olds are currently served in a variety of government-funded early education programs. To that end, Table 2 includes the enrollment and spending figures for these nine state pre-K programs and Table 3 shows total enrollment for state pre-K, special education, and state and federal Head Start.

Table 2. Enrollment and Spending Data for RTT-ELC Winners in 2009-2010

State State Pre-K Enrollment Percent of 3-year-olds Enrolled Percent of 4-year-olds Enrolled State Spending per Child Enrolled in State Pre-K Total Per-child Spending from All known Sources
California 147,185 10% 17% $5,410 $5,571
Delaware 843 0% 7% $6,795 $6,795
Maryland 26,147 0% 35% $4,116 $9,645
Massachusetts 13,468 4% 14% $3,895 $3,895
Minnesota 1,874 1% 1% $7,301 $7,301
North Carolina 31,197 0% 24% $5,239 $7,824
Ohio 5,700 1% 2% $3,902 $3,902
Rhode Island 126 0% 1% $5,556 $9,127
Washington 8,026 2% 7% $6,817 $6,817

Table 3. State and Federal ECE Enrollment for RTT-ELC Winners in 2009-2010

State Enrollment in State Pre-K, Special Education Pre-K, and State and Federal Head Start (Unduplicated)
Percent of 3-year-olds in state Percent of 4-year-olds in state
California 18% 31%
Delaware 11% 18%
Maryland 10% 46%
Massachusetts 14% 26%
Minnesota 10% 15%
North Carolina 7% 35%
Ohio 14% 19%
Rhode Island 10% 19%
Washington 9% 20%

As Sara Mead noted shortly after the announcement, “The list also should clearly underscore that ELC is NOT a pre-k program: Rhode Island, for instance, has only a recently-created pre-k pilot, and Minnesota serves relatively few children in pre-k.” In a program that called so clearly for inter-agency collaboration and recommended private-sector partnerships, the impact will go far beyond just pre-existing state-funded pre-K programs. There will be no shortage of analysis on the impact in Head Start and child care in the coming days, months, and years.

A number of these states have been in the news recently for their early education programs, and the news has not all been good. California merged its pre-K and child care programs in the 2009-2010 school year but has faced continued funding challenges. North Carolina, once a national leader in early childhood education, has been involved in a lengthy legal battle over the program; Steve Barnett recently wrote that the state is “on the verge of abandoning its commitment to high-quality pre-kindergarten education.” Rhode Island only recently started its small pre-K program, while Ohio completely cut one such program as of the 2009-1020 program year. It is hoped the RTT-ELC grants will spur these states to become true national leaders.

– Megan Carolan, Policy Research Coordinator, NIEER

– Jen Fitzgerald, Public Information Officer, NIEER

NIEER’s Comments on Race to the Top-Early Learning Challenge

July 11, 2011

As NIEER noted last week, officials from the Departments of Education and Health and Human Services released draft guidelines for the Race to the Top-Early Learning Challenge (RTT-ELC) program and will be accepting comments on those guidelines until 5pm EDT today. The National Institute for Early Education Research (NIEER) applauds this early learning initiative and offers the following comments.

– The program calls for a focus on children from birth to age 5. This is an ambitious approach. It should be recognized that current federal and state policies are not adequate for 3- to 5-year-olds; states cannot simply assume this work is done and move on to children under age 3. Neither federal nor state programs for 4-year-olds are sufficiently effective, and 3-year-olds are basically ignored by most states’ early education policies. Yet, simultaneously improving all services for children from birth to age 5 would be a tremendous undertaking and states are hard hit now by the recession. States should be permitted to take on major investments in one sector or program at a time in the context of a broader plan for the entire system. They should not be pressed to produce unrealistic plans for creating seamless high-quality, birth to age 5 systems in a short time with inadequate resources.

– Far too much publicly subsidized and provided early care and education is of such low quality that it fails to significantly enhance child development. Some publicly funded services may even have modest negative impacts on children. The questionable quality of services provided by some public programs for young children makes quality enhancement a more pressing goal than expanding access. Increased enrollment should become a goal only after a program is good enough to substantially enhance learning and development. Infant-toddler care should have a particularly high priority for quality improvement.

– Quality Rating and Improvement Systems (QRIS) are not a proven approach to improving student learning. A QRIS can incentivize some programs to improve their quality for higher reimbursement rates, but those programs are likely to be the ones with the most resources from the start. Too often, programs that are struggling financially will be unable to raise their quality enough to earn the higher rate without more assistance than most QRIS provide. For various reasons QRIS may provide little more than window dressing with respect to improvements in quality or financial incentives for improvement. Ratings systems can become ineffectual. Increased investment in research is needed to learn from different state experiences as they develop and implement QRIS.

– Assessment is a useful tool in continuous program improvement, but must be used with caution. Assessments alone should not be used to make high-stakes decisions about individual programs or children. The regulations call for increasing understanding among educators as to the uses and limitations of various assessment types—this is paramount to ensuring data is collected and used responsibly to improve programs. Assessments aligned with standards can give useful information on what is and is not working in a program, and should be used to guide trainings, professional development, and technical assistance. Yet, many professionals do not sufficiently understand the strengths or limitations of various assessments and the appropriate purposes for which they may be used. For example, it is common to see screening tests used completely inappropriately. Beyond the particulars of assessment, it is important that early childhood professionals be educated about the difficulties in making causal inferences about programs from assessment data and the kinds of evaluation designs required for valid inferences.

– The development of the required kindergarten entry assessment for all students is an ambitious feat, and applicants may need significant guidance in implementing a strategy that works. Current regulations call for educators to implement assessments, though policymakers must be warned of the potential bias of not using third-party evaluators. A kindergarten entry assessment can also only supply so much information regarding readiness and progress without some prior assessment to use as a “baseline.”

– Developing valid and reliable assessments that can be used for every child entering public kindergarten by the 2014-2015 year is a large task with considerable expense. The federal government provided Race to the Top assessment grants for consortia of states to develop valid assessments for students in the upper grades. A similar grant program for early learning would enable states to work together on an early childhood assessment system that is valid, reliable, and manageable. Such an endeavor is likely to be unaffordable state by state; additionally, the field could benefit from collaborations among states so that information collected is comparable across state lines.

– Workforce development is an important goal in providing high-quality early learning experiences. We support the regulations’ focus on improving educators’ knowledge and competencies, and further professionalizing early childhood education to recruit and retain the best teachers. Collaborating with institutions of higher education is essential to ensuring credential requirements truly reflect the skills and knowledge needed to teach young children. Professional preparation and development efforts should formally integrate with higher education to permit seamless career development. Every child deserves a well-educated lead classroom teacher, and one route to this is a bachelor’s degree with an appropriate specialization. Teachers should be properly trained in curriculum, assessment, and pedagogy. Similarly, professionals benefit from supervision by properly trained administrators (e.g., principals, directors, coordinators). Furthermore, NIEER recommends that states address policies for scheduling and staffing patterns requiring adequate time away from children to plan curricula based on assessment and to engage in professional development.

– Judging states based on commitment and investment since 2007 may disadvantage those states whose attempts to develop early learning systems have been slowed by budgetary constraints, especially given the fiscal conditions of these last four years. These states could significantly benefit from additional funding and technical assistance offered through RTT-ELC. Peer reviews should use caution when measuring states against the criteria of prior commitment, as these funds may be exactly the “jump start” some states need to catalyze early learning investment.

NIEER looks forward to the release of the final regulations and to the chance for states to bolster their programs for the youngest learners.

– W. Steven Barnett
Co-Director, NIEER

And They’re Off!: Race to the Top-Early Learning Challenge Details Announced

July 7, 2011

Last week, in conference calls with stakeholders and reporters, officials from the Departments of Education (ED) and Health and Human Services (HHS) provided further details on the Race to the Top-Early Learning Challenge (RTT-ELC) program. The Obama administration announced $500 million for the competitive grants in late May, and will accept feedback on the draft guidelines until July 11 before finalizing the regulations.

The competition is guided by three sets of priorities: absolute, competitive preference, and invitational:

• Absolute: These must be addressed in each state’s application.

  • Early learning and development standards and kindergarten entry assessments
  • Tiered quality rating and improvement system (QRIS)

• Competitive Preference: These criteria will secure “extra” points for applicants.

  • Include all early learning and development programs in the tiered QRIS

• Invitational: These are areas of particular concern for the Departments.

  • Sustained program effects in early elementary grades
  • Encourage private sector support through public/private partnerships

The program will rely on four selection criteria:

• Building successful state systems that align a variety of programs (Head Start, child care, state-funded pre-K, etc.).
• High-quality standards and comprehensive assessments focused on a broad range of domains to enter kindergarten ready to succeed. This includes engaging and supporting families and encouraging healthy development across domains.
• Developing high-quality, accountable programs using a robust tiered QRIS. This necessitates common statewide tiered program standards, promoting participation in QRIS across sectors, implementing rating and monitoring, and validating effectiveness of the QRIS.
• Developing and retaining an effective, high-quality workforce through improving knowledge, competencies, and credentials across the early childhood workforce.  States should also work with the higher education community to engage in this process.

Grant caps were developed by ranking each state based on its share of the national population of children birth to age 5 from low-income families.  Recognizing that rural communities have unique needs, the Departments may “exercise discretion” in ensuring states with large rural communities are well-represented.

Category Budget Cap States
Category 1 Up to $100M California, Florida, New York, Texas
Category 2 Up to $70M Arizona, Georgia, Illinois, Michigan, North Carolina, Ohio, Pennsylvania
Category 3 Up to $60M Alabama, Colorado, Indiana, Kentucky, Louisiana, Missouri, New Jersey, Oklahoma, Puerto Rico, South Carolina, Tennessee, Virginia, Washington, Wisconsin
Category 4 Up to $50M Alaska, Arkansas, Connecticut, Delaware, District of Columbia, Hawaii, Idaho, Iowa, Kansas, Maine, Maryland, Massachusetts, Minnesota, Mississippi, Montana, Nebraska, New Hampshire, New Mexico, Nevada, North Dakota, Oregon, Rhode Island, South Dakota, Utah, Vermont, West Virginia, Wyoming

After reviewing the full text released by ED and HHS, a few trends are clear throughout the draft guidelines:

• There is a clear emphasis on collaboration across sectors and settings.  The grant ultimately seeks to help states remove various early learning programs from their separate silos and create a coherent statewide system. The Departments provide a comprehensive list of program settings to be involved, including state-funded pre-K programs, Early Head Start and Head Start programs, and programs funded by Individuals with Disabilities Education Act (IDEA), Title I of the Elementary and Secondary Education Act (ESEA), and/or the Child Care and Development Fund (CCDF).
• States are expected to use RTT-ELC funds to supplement (and not supplant) state funding for these programs, as well as leverage existing resources to create stable funding both during and after the grant period. Particular attention is drawn to the quality set-asides in CCDF.  Secretaries Duncan and Sebelius had earlier emphasized the potential of utilizing funding from CCDF, Early Head Start and Head Start programs, IDEA, and Title I.  The feds are so eager for states to consider leveraging CCDF funds for early learning initiatives that they may submit revisions to their CCDF plans (due August 1) to align with their RTT-ELC applications.
• In this same open letter, governors were encouraged to utilize existing resources, both in terms of building on existing programs as well as working with organizations and agencies in their states already in the field. In particular, they singled out existing State Advisory Councils on Early Childhood Education and Care (SACs). In fact, having an operational SAC is an eligibility requirement of the grant, though how much participation will be required of SACs is not explicated.
• The Departments call for the development of a high-quality workforce through improving knowledge, competencies, and credentials. While the regulations call for collaboration between state programs and higher education institutions to improve credentialing, there are no clear guidelines as to what makes a “good” credential or well-qualified teacher.  Policymakers must ensure that the goal of increasing the number of credential recipients is not at the expense of maintain and improving the credential quality.
• The regulations call for increasing access to high-quality programs for high-need children. The best way to achieve this is by improving the quality of programs already enrolling children, rather than creating additional programs that cannot maintain high quality. In many states, the early childhood services offered are not of the highest quality to contribute to long-term growth. To expand the reach of these programs would be counterproductive.

Draft guidelines are available for the grant program at Comments will be accepted through 5 PM (EDT) on July 11. The final guidelines will be published in mid-August, and states must submit applications by mid-October. The grant period will be from December 2011 to December 2015.

Rundown of Organization Responses

There has been no shortage of analysis and commentary in the early learning blogosphere since the May announcement of the funds.  Below are links to some helpful recommendations and suggestions from organizations regarding the Challenge.  Please note that most of these documents were assembled before guidelines were further specified and so may only briefly touch on issues that are now paramount to applications.

The Huffington Post’s Education section gets reaction to the draft guidelines, including some comments from NIEER’s co-director, Steve Barnett.
• New America Foundation provides an archive of their Early Ed Watch blog’s coverage of RTT-ELC.
• Sara Mead at Education Week has voiced several concerns about the program, including peer review, the lack of clear role for foundations, and the vague goals initially offered, starting with the official announcement.
• The National Journal’s Expert Blog on Education offers a veritable pu pu platter of recommendations and cautions.
• CLASP offers research and resources directed towards each area highlighted in the ELC goals.
• Marian Wright Edelman and the Children’s Defense Fund put RTT-ELC in context.
• The First Five Years Fund’s The Starting Point blog provides strategies for early brainstorming on this short timeline.

Over the next few weeks, we expect to see more recommendations, suggestions, and commentary as experts and policymakers digest this information.

– Megan Carolan, Policy Research Coordinator, NIEER
– Jim Squires, Senior Research Fellow, NIEER

Winning the Future: Early Learning, Race to the Top, and Federal Funding

May 25, 2011

After more than a month of tweaking and planning, today Secretary of Education Arne Duncan and Secretary of Health and Human Services Kathleen Sebelius announced the details of the Race to the Top-Early Learning Challenge (RttT-ELC). Both departments will co-administer the $500 million state-level grant competition, which has the goal of rewarding states that develop comprehensive plans for early learning system with coordination, clear learning standards, and “meaningful workforce development.” The most exciting aspect of this new initiative is that it puts quality front and center, incentivizing states to improve the educational effectiveness of all programs from birth to five, including state and local pre-K, Head Start, and subsidized child care. Specifically, states applying for grants will be encouraged to:

• Increase access to high-quality learning programs for low-income and at-risk infants, toddlers, and preschoolers
• Create transparent systems that align early care and education programs
• Improve training and support for the early learning workforce
• Implement robust evaluation systems to share best practices
• Help parents make knowledgeable decisions about their children’s care and education.

States must also ensure that any assessments used conform with the recommendations of the National Research Council on early childhood. The grants will also encourage states to continue making effective use of current state and federal investments in child care and early education.  Additional details of the grants will be available later this summer; grants will be awarded to state no later than the last day of 2011. Opportunities to comment are provided at This is your opportunity to push for higher quality.

Race to the Top, which has been a hallmark of the Obama administration’s education policy, originated in the stimulus bill (the American Recovery and Reinvestment Act of 2009, or ARRA) as competition among states for education funding. The Department of Education has lobbied for an Early Learning Challenge Fund for two years, and the Obama administration requested it in their FY 2010 budget proposal, but many were surprised that the ELC Grants emerged from the sometimes acerbic battle of the budget for the end of FY11. Secretary Duncan noted at the press conference that “We are deeply grateful to Congress for supporting these programs. Congress understands the value of investing in education reform, particularly early learning, even in these economic times.”

Up until this point, the U.S. Department of Education has had little involvement in the funding or regulation of early childhood education. Yet, state-funded preschool has seen a remarkable rise in the last decade through a number of innovative program and funding structures. In the 2009-2010 school year, state-funded pre-K enrolled 1.3 million students, largely at ages 3 and 4. Adding special education brings the total to about 1.6 million. These programs are largely funded out of state dollars. The $5.4 billion spent last school year represents a decrease from the previous year, reflecting the impact of the recession.. States have increasingly turned to innovative applications of available federal funds; states utilized at least $283 million in federal funds, as well as another $154 million in TANF monies, to supplement their programs. In order to win grants in the Early Learning Challenge, states will need to work toward better integration and quality with a variety of programs, including the following:

Head Start
The largest federal foray in to early childhood education comes in the form of the Head Start program. In the 2009-2010 school year, Head Start served 755,078 3- and 4-year-olds nationwide (though the program is available to children at other ages as well) at the cost of about $7.4 billion. In the last few years, Early Head Start to serve children under age 3 has been greatly expanded to serve nearly 115,000 infants and toddlers.

Five states – Delaware, Minnesota, Oregon, Pennsylvania, and Wisconsin – use the existing structure of Head Start to implement state-funded pre-K programs that expand access to more low-income children. Twelve other states (including two without pre-K programs) provide supplemental Head Start funds as well, though this money is often used to increase staff salaries, provide extended-day or year services, or otherwise fund quality improvements rather than expanding access. At the local level, Head Start partners with school districts as well.

Child Care and Development Fund (CCDF)
The federal government also provides funding for child care programs through the Child Care and Development Fund, also administered through HHS. At least five states parlay CCDF into funding for pre-K programs. In the 2009-2010 year, California merged five of its early care and education programs into the State Preschool Program. While this change largely just redistributed resources rather than adding any new funding, this provides a better educational opportunity than most usually receive through CCDF funds. States that fund pre-K programs with these funds go above and beyond learning experiences in most child care facilities while using resources already at their disposal.

Temporary Aid to Needy Families (TANF)
States have wide latitude over how they use the Temporary Aid to Needy Families (TANF) funds from the federal government. While the majority of this funding goes to provide public assistance subsidies, a substantial amount is used for child care subsidies and six states report using at least $81.7 million in TANF contributions for their pre-K programs targeting at-risk preschoolers.

Other Federal Programs
In a testament to state ingenuity, state pre-K administrators reported utilizing federal funds from a number of other programs, though states were often unable to specify the dollar amounts. Additional programs include:

• IDEA funds
• USDA Child and Adult Care Food Program
• NCLB Title programs
• Early Reading First
• Even Start
• 21st Century

While most programs consistently fund the majority of pre-K program operation using state dollars, for some federal funding has been a relatively stable source of supplementary funding, which can expand enrollment as well as improve quality. However, the 2011 federal budget requires 0.2 percent cuts across all non-defense discretionary spending, and eliminated a number of programs in the Department of Education, including Striving Readers, Even Start, and Educational Technology State Grants. States will have to put on their thinking caps in order to make up for lost funding from these sources or else face harrowing choices about cutting slots or compromising program quality.

All this talk of program consolidation and budget cuts is enough to make one weary of the appropriations process, but don’t be fooled by the late passing of the FY 2011 budget—budget season for FY 2012 is in full swing! Federal programs are funded through September 30, 2011, but be sure to take a look at the budget proposals for the Departments of Education and Health and Human Services put forth by the Obama administration as well as information on the pending reauthorization of ESEA to ensure America’s youngest learners have the resources they need to succeed.

The Early Learning Challenge grants are one of the most exciting developments in federal early learning policy to date. As the early learning community awaits the innovation and creativity states will demonstrate in their grant applications, let us also maintain our focus on utilizing all available federal resources to ensure all young learners enter school ready to learn, succeed, and “win the future.”

– Megan Carolan, Policy Research Coordinator, NIEER

The State of the Union and Early Education

January 28, 2011

Like many others I was disappointed that President Obama didn’t mention early childhood education in his State of the Union Speech. Yet when he talked about education, government, and the American people the president said many of the right things for our early learning programs. He noted a sense of urgency when he said the future is ours to win but to get there, we can’t just stand still. He called for more competent and efficient government and for every classroom to be “a place of high expectations and high performance.”  His call to “out-innovate, out-educate, and out-build the rest of the world” had that uniquely American “can do” ring to it that early education policymakers and practitioners should heed.

The president made his case for quick action when he pointed out that over the next 10 years nearly half of all new jobs will require education that goes beyond a high school education. And, he pointed out that as many as a quarter of our students aren’t even finishing high school. He asked whether all of us — as citizens and as parents — are willing to do what’s necessary to give every child a chance to succeed and he pointed out that when a child walks into a classroom, it should be a place of high expectations and high performance.

He spoke proudly of Race to the Top, pointing out that instead of just pouring money into the status quo his administration launched a competition for innovation and reform across the education spectrum.  The Obama administration has moved similarly to bring competition to Head Start.  Properly implemented, this has the potential—to paraphrase the president—to be the most meaningful reform our early childhood system has seen in a generation.  The administration should have the support of everyone in the early childhood field to get this reform right, and in my opinion that means including measures of children’s learning in decisions about who gets funded.  This principle ought to be extended to subsidized child care, as well.

Of course there is much more to be done in way of directing funds specifically to innovation in the early education sector so that we too can reinvent ourselves.  We need a great deal more research and evaluation aimed at identifying the effects and costs of policy and practice alternatives in early care and education.  The federal government could greatly facilitate reinvention by sponsoring a program of research to help guide policymakers at the state and local level as well as program administrators in Head Start, child care, and the public schools.  By incentivizing local innovation by educators willing to engage in experiments (freeing them from regulations that get in the way of innovating on a trial basis) and systematically collecting good data on the costs and effects of these innovations, government can build on the hard work, creativity, and imagination of our people the president recognized.  Nothing could help us more to do big things for little children.

Steve Barnett

Co-director, NIEER


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