INSIGHTi
Universal Preschool: House Committee on
Education and Labor’s FY2022 Reconciliation
Recommendations
September 14, 2021
On September 10, 2021, the House Committee on Education and Labor voted (28-22) to transmit a
committee print, as amended, to the House Committee on the Budget. The committee print contains
recommendations responding to reconciliation directives in the FY2022 budget resolution (S.Con.Res.
14). Section 23002 of Subtitle D makes recommendations for a new Universal Preschool program.
According to the committee’s fact sheet, the Universal Preschool program (highlights of which are
discussed in this Insight), together with a proposed child care entitlement program (discussed in CRS
Insight IN11750), are expected to cost a combined $450 billion throughout the reconciliation budget
window.
Appropriations
Section 23002 recommends open-ended mandatory appropriations of “such sums as may be necessary”
for each of FY2022-FY2028 to carry out this section. Funds would be appropriated to the U.S.
Department of Health and Human Services (HHS); the program would be administered by HHS in
collaboration with the U.S. Department of Education (ED).
HHS would provide funds to states, territories, local entities serving families engaged in migrant or
seasonal agricultural labor, and Indian tribes, tribal organizations, and Urban Indian organizations. In
addition, certain amounts would be reserved for HHS administrative costs (including costs of monitoring,
technical assistance, and research), grants to improve compensation in Head Start programs, and grants to
eligible localities located in states that have indicated they do not intend to submit an application and plan
for funds under this section.
Eligible Children and Providers
Eligible children would be those ages three or four on the date established by the local educational agency
for kindergarten entry. There would be no income, asset, or parental activity requirements.
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Preschool providers would be eligible if they are Head Start agencies; local educational agencies (acting
alone or with an educational service agency) that are licensed by the state or meet comparable health and
safety standards; licensed child care providers (including center-based providers, family child care
providers, and community- or neighborhood-networks of family child care providers); or consortia of
such entities.
Use of Funds
Under the committee print, states could use funds for certain state-level activities. These include costs of
program administration, data systems, degree attainment, age-appropriate transportation for children, and
improving inclusive services for children with disabilities, among others.
In addition, states could fund subgrants or contracts with eligible providers to cover the costs of enrolling
and serving children in preschool programs. These include personnel costs; costs of meeting state
standards (including those related to child development, licensure, and health and safety); professional
development and training; materials, equipment, and supplies; and rent, mortgage, utilities, insurance, and
costs associated with security and maintenance.
The committee print recommends that amounts to eligible providers reflect variations in the cost of
preschool services by geographic area, type of provider, age of child, and additional costs of providing
inclusive services. For providers serving a high percentage of low-income children, amounts should be
enhanced to support comprehensive (including social and emotional) services, health and developmental
screenings, and service referrals for participating families. Subgrants and contracts should generally be
awarded for a period of not less than three years. In awarding funds, states must prioritize high-need
communities.
State Match
In FY2022-FY2024, there would be no state match required for spending on the costs of preschool
services. Starting in FY2025, states (including the District of Columbia) must contribute a 10% match, in
cash or in kind. The required state match would increase incrementally, stopping at 40% in FY2028.
Meanwhile, spending on state-level activities must be matched at 50% in each year (FY2022-FY2028).
Total spending on state-level activities would be capped.
In general, a state must maintain its combined fiscal effort per child under this section, as well as under
any existing publicly-funded preschool programs or state-funded Head Start programs. If a state reduces
per child spending, HHS (in collaboration with ED) may correspondingly reduce federal funds. (States
may request a waiver of this requirement in certain circumstances.) Funds provided under this section
shall supplement, not supplant, other federal, state, and local funds for early childhood care and education
programs.
State Plans
States seeking funds would have to submit plans, as required by HHS (in consultation with ED). In these
plans, states would have to (among other things):
Certify they have developmentally appropriate, evidence-based preschool standards
(including for class sizes and ratios) that are as rigorous as Head Start performance
standards. (All preschool services funded under this section must meet these standards
within one year of receiving funds.)
Certify they will prioritize preschool programs in high-need communities (accounting for
poverty rates, access to high-quality preschool, and disparities in access for underserved
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or vulnerable populations) and ensure that a majority of children in such communities are
offered services before expanding to lower-need communities.
Describe, as applicable, how they will use funds to ensure existing publicly-funded
preschool programs (as of the date state plans are submitted) meet the requirements of
this section.
Certify they will use a mixed-delivery system (i.e., allow participation of Head Start
programs and other eligible providers, including family child care providers).
Certify that preschool seats will be distributed equitably among child care (including
family child care), Head Start, and schools.
Certify that children with disabilities will have access to inclusive programs that meet the
requirements of Section 619 of the Individuals with Disabilities Education Act.
Assure all preschool services funded under this section will be universally available to all
children in the state and be high quality, free, and inclusive.
Assure all preschool services funded under this section will be offered for at least 1,020
hours annually (consistent with certain center-based Head Start standards for a full
school-year and -day).
Assure that preschool staff salaries will be equivalent to salaries of elementary school
staff with similar credentials and experience.
Assure that, within seven years of enactment, preschool teachers will have a
baccalaureate degree in early childhood education (or a related field). (Exceptions may be
made for certain teachers employed for three of the five years prior to enactment who are
determined by a state to have the necessary knowledge and skills.)
Author Information
Karen E. Lynch
Specialist in Social Policy
Disclaimer
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