Bridging the Gap: Universal Kindergarten as a Path to Educational Equity

Alexandra (Lexie) LaCerda Jones

University of Michigan

February 11, 2025 

Early childhood education plays a crucial role in a child's development, with the first five to six years being particularly formative (Bassok, Latham & Rorem, 2016). Federally funded programs like Head Start aim to support early childhood education for low-income families, but serve only a fraction of eligible children due to limited funding (Child Care Resource Center, 2024). Research reveals that from birth to age five, "a child's brain develops more rapidly than at any other time in life," with 90% of brain development occurring by age six (First Things First, 2018). While genetics influence this growth, experiences in these early years significantly impact a child's "health and ability to learn and succeed in school and in life” (First Things First, 2018). Despite this evidence of this crucial period, kindergarten is not mandatory in all 50 states. Only 17 states require kindergarten attendance, 44 states mandate that districts offer at least half-day kindergarten, and just 16 states require full-day kindergarten programs (National Center for Education Statistics, 2020). Since 1977, enrollment in full-day kindergarten has risen from 28% to 76% by 2012 (National Center for Education Statistics, 2024). However, many districts do not offer full-day programs, forcing families to consider private education, which creates discrepancies in foundational development based on a family's financial capacity.

The absence of universal full-day kindergarten exacerbates educational inequities. Research suggests that students in full-day programs outperform their peers, demonstrating "stronger achievement, fewer gaps between subgroups, decreased remediation in subsequent years, and better-developed social/emotional skills” (Siberms, Gates, & Lolich, 2014).  In an Indiana district case study, students in "full-day kindergarten received significantly higher basic skills test scores in the third, fifth, and seventh grades" compared to those who attended half-day or no kindergarten at all (National Education Association, 2015). The benefits were particularly pronounced among disadvantaged students, illustrating that full-day programs help narrow educational gaps and create a more equitable learning environment. Moreover, full-day kindergarten benefits not just students but also teachers and parents. Teachers' workloads are reduced, giving them more time to individualize instruction and better identify and support students with learning difficulties. Parents benefit from reduced childcare costs, and full-day programs provide a stable, safe environment that supports consistent routines for children and parents (Siberms, Gates, & Lolich, 2014).

The lack of universal kindergarten access disproportionately impacts marginalized communities. Children from low-income families and historically underserved racial and ethnic groups are less likely to attend high-quality early education programs, contributing to early learning gaps (National Education Association, 2015). Rural communities face additional barriers, as many districts lack the funding necessary to offer full-day kindergarten, leaving families reliant on costly private programs or without access to early education altogether. In 2019, average out-of-pocket childcare expenses were $10.94 per hour for relative care, $16.16 for non-relative care, and $21.32 for center-based care (National Center for Education Statistics, 2024). These costs have risen significantly since 2019, placing a greater financial burden on families seeking quality care for their children—a challenge that universal full-day kindergarten could help alleviate. Approximately 55% of children aged five and under who are not yet enrolled in kindergarten participate in non-parental care arrangements. Of these, 66% are in center-based care, 34% rely on relative care, and 17% on non-relative home-based care (National Center for Education Statistics, 2024). Ensuring universal kindergarten access is an educational and equity imperative with long-term social and economic implications.

 A federal mandate for universal full-day kindergarten would be a redistributive policy, reallocating federal funds to ensure all public schools offer full-day programs. This direct intervention would involve federal legislation requiring all states to provide full-day kindergarten, supported by dedicated federal funding. This policy ensures that every child can access a high-quality kindergarten program regardless of zip code or parents' income. The funding will come from taxes, like all public schools, but will not take away from other public school programs. A study of Oklahoma’s universal pre-K program, while a different type of education, shows that a universal mandate for early developmental education has enhanced the school readiness of a diverse group of children (Gormley, 2024). The program found that it led to a 12 percent boost in college enrollment many years later and that the program's benefits outweighed its costs by nearly 3 to 1 (Gormley, 2024).  The limitation of this policy is the cost of implementation, which involves significant federal investment. This may lead to substantial pushback from policymakers, delaying implementation. However, the long-term economic and social benefits outweigh the short-term costs, as early education investment has been shown to yield high returns in reduced remediation, increased future earnings, and overall societal benefits (Heckman, 2011). 

A second policy to address this problem would be a state-level incentive program to expand kindergarten. This is a more indirect form of intervention that would implore and persuade states to participate. The federal government would create a grant program that rewards states for expanding access to full-day kindergarten. When states lack the resources to guarantee universal access to full-day kindergarten, state policymakers should implement categorical programs that encourage districts to offer full-day kindergarten to targeted populations, such as at-risk students (García & Weiss, 2017). This is limited to state participation, which leaves gaps in zip codes and coverage. Grant programs are also often subject to budget constraints, which makes long-term sustainability uncertain. Seven states currently “provide a strong incentive to offer full-day kindergarten,” including Alaska, Georgia, Illinois, Nebraska, New Mexico, New York, and Wisconsin (Kuaerz, 2025). This means these states provide more funding for full-day kindergarten than for half-day, and the weight assigned to full-day kindergarten is equal to that assigned to 1st-grade students. This policy is more politically feasible than the previous one because it gives local governments greater control, making it more likely to be passed and implemented more quickly.

Ensuring universal access to kindergarten is critical for closing early learning gaps and promoting educational equity. While a federal mandate offers a comprehensive solution, state-level incentives provide flexibility and political viability. Policymakers must consider both approaches to create an education system where every child, regardless of background, has the opportunity to succeed. 

References

Bassok, D., Latham, S., & Rorem, A. (2016). Is Kindergarten the New First Grade? AERA Open, 2(1), 233285841561635. https://doi.org/10.1177/2332858415616358

Child Care Resource Center. (2024, January 15). Head Start. Child Care Resource Center (CCRC). https://www.ccrcca.org/headstart/home/?gad_source=1&gclid=CjwKCAiA74G9BhAEEiwA8kNfpSLArKzkCTGjOGC8sxTK83HDcgZ2Kw48N1XCuJhnXOF_krYMSo-m6RoChvwQAvD_BwE

First Things First. (2018). The First Five Years. Files.firstthingsfirst.org. https://files.firstthingsfirst.org/why-early-childhood-matters/the-first-five-years

García, E., & Weiss, E. (2017). Education inequalities at the school starting gate Gaps, trends, and strategies to address them Report •. https://files.eric.ed.gov/fulltext/ED588751.pdf

Gormley, W. (2024, April). Universal Pre-K in Tulsa: A Surprising Success. NASBE - National Association of State Boards of Education. https://www.nasbe.org/universal-pre-k-in-tulsa-a-surprising-success/

Heckman, J. (2011). The Economics of Inequality The Value of Early Childhood Education. https://files.eric.ed.gov/fulltext/EJ920516.pdf

Kuaerz, K. (2005). FULL • DAY kindergarten A Study of State Policies in the United States. https://www.ecs.org/clearinghouse/62/41/6241.pdf

National Center for Education Statistics. (2020). State Education Practices (SEP). Nces.ed.gov. https://nces.ed.gov/programs/statereform/tab1_3-2020.asp

National Center for Education Statistics. (2024, October 10). Early Childhood Program Participation: 2023. Ed.gov; National Center for Education Statistics. https://nces.ed.gov/pubsearch/pubsinfo.asp?pubid=2024112

National Education Association. (2006). GPS INDICATORS FRAMEWORK. https://www.nea.org/sites/default/files/2021-02/27604%20GPS%20Indicators%20Framework_Final.pdf

National Education Association. (2015). Full-day Kindergarten Helps Close the Achievement Gaps Great Public Schools for Every Student. https://www.nea.org/sites/default/files/2020-07/18001_Full-Day_Kindergarten_Policy_Brief-final.pdf

Sieberms, M., Gates, C., & Lolich, E. (2014). Full-Day Kindergarten: What the Research Says . Northwest Comprehensive Center at Education Northwest.