In 2022, the Colorado General Assembly introduced landmark legislation transferring authority for early childhood learning from the departments of human services and education to a newly established Colorado Department of Early Childhood (CDEC).
House Bill 22-1295 simplified the process of applying for early childhood education with a unified electronic application for publicly-funded programs. It also created a streamlined system of data collection and evaluation to ensure adequate funding that meets the needs of families and supports the early childhood workforce.
The legislation, originally sponsored by Colorado State Representatives Emily Sirota and Alec Garnett, and Senators Stephen Fenberg and Janet Buckner, was signed into law by Colorado Governor Jared Polis in April 2022, resulting in the creation of a voluntary Colorado universal preschool program (UPK) and the appointment of well-known early childhood expert, Dr. Lisa Roy, as the inaugural CDEC Executive Director.
Representing Arapahoe County’s District 29, Buckner acknowledged her early experiences as a speech and language therapist as the catalyst for her early childhood advocacy, and said she “couldn’t be more proud,” at the bill signing.
“We knew that this was doable, but there was such a large amount of stake holding – so many parents, providers, people who are on the front lines, to make sure that kids have access and now families can go to one place, fill out one application, and not leave anything on the table when it comes to services for their children,” said the senator.
The bill signing event, which took place on the Clayton Early Learning Center campus in Denver, was a momentous community affair.
Early childhood leader, Anna Jo Haynes, calls the bill signing a realization of her “lifelong vision.”
“As an early childhood advocate for nearly sixty years, I am extremely proud that we have finally provided for universal preschool for all children in Colorado,” Haynes says. She credits voters for their support of a 2020 ballot initiative that allocated funding for universal preschool, health and other education programs sourced from state tobacco taxes.
“These successes have been built on the tireless efforts – for decades – of many dedicated early childhood advocates such as the Colorado Children’s Campaign, Gary Investments and the United Way, as well as previous Governors and legislators to elevate the needs of our youngest children and families.”
In 2016, Haynes was inducted into the Colorado Women’s Hall of Fame in recognition of her visionary leadership to help improve the lives of Colorado children. With over 40 years of early childhood advocacy, she founded and served as President Emeritus of Mile High Montessori Early Learning Centers, and was a co-founder of the Colorado Children’s Campaign.
For her and others working to improve programs and services for Colorado families, the universal preschool program was the result of a tremendous, decades-long effort to create stronger academic, social-emotional and health outcomes for early learners.
The final bill of the UPK trifecta of legislation, House Bill 1304, is titled, “The Anna Jo Garcia Haynes Early Childhood Act,” honoring her lifetime of work.
What is the Universal Preschool Program?
Research shows that the window from birth to age five is a critical time in a child’s development that creates the foundation for their future. Preschool supports child development by providing early exposure to reading and arithmetic, while supporting social and emotional skill building through stimulating activities.
UPK launched in August 2023, with a mixed-delivery model that allows families to choose a provider of their choice. Participating community-based, school-based or home-based preschool providers receive state-funded stipends to cover the cost of 15 hours of tuition for students, saving families an average of $600 per month.
Families may qualify for up to 30 additional free hours based on qualifying factors, including whether the participating children are homeless or unhoused; multilingual; eligible for special education with an Individualized Education Program (IEP) in place; a member of a household earning income less than 100% of federal poverty guidelines; or in the custody of a state supervised and county-administered kinship or foster care home.
For families who qualify for the federal, state and county-funded Colorado Child Care Assistance Program (CCCAP), dual enrollment may cover the difference in hours between what UPK provides and what families need.
Early Challenges and Success
Despite enthusiasm for the UPK rollout, state educational leaders were faced with opposition in the earliest phase of the program’s implementation.
In August 2023, a sweeping lawsuit was filed by an organization representing Colorado’s superintendents, an organization representing special education directors and six school districts, alleging that the program’s matching system violates federal and state laws protecting students with disabilities.
The lawsuit, which named Gov. Polis and state education leaders as defendants, highlighted revenue disruptions, technological glitches and miscommunications that could potentially harm providers and families during the enrollment process.
An additional lawsuit was filed against Dr. Roy, addressing the exclusion of some faith-based preschools due to prioritization based on religious and personal affiliations. This suit was initially rejected and is being appealed.
Opponents of the program pushed for extended implementation, but after a year of deliberation a Denver judge dismissed the primary lawsuit, stating that plaintiff’s concerns should be addressed through policy-making or administrative efforts instead of the court system.
Amid ongoing legal challenges and acclimation to the new system, the first year of UPK was largely successful.
From 2022-2023, preschool programs were administered by the Colorado Preschool Program (CPP), with enrollment rates for four-year olds just over 15,000. In March 2024, Rocky Mountain PBS (RMPBS) reviewed the impact of UPK’s first year, finding that by November 2023, nearly 39,000 four-year-olds were enrolled in UPK and receiving 15 hours of free education each week.
However, enrollment rates were much lower for three-year-olds participating in preschool during UPK’s pilot year. According to CDEC Public Information Officer Ian McKenzie, the age discrepancy was caused by financial constraints resulting from prior year CPP budget allocations.
For the 2024-2025 school year, four-year-old services will continue to be prioritized with special considerations for 3-year-olds based on space and other qualifying factors.
Getting Started
Families who want to enroll their preschool-age students in the UPK program should do so as soon as possible.
Registration opened on Feb. 29, and the “matching” process took place through the end of July. However, there are still opportunities to participate if registration was not completed before July 31. Those in need of assistance throughout the registration process can contact a Local Coordination Organization (LCO) for additional guidance.
To begin the UPK selection process, families looking for new preschool providers can browse a list of over 2,000 high-quality, licensed providers. Each provider will offer different instructional approaches and support services, in addition to providing different attendance options such as part-time, half-day, full-day and extended day.
Families are encouraged to reference the Colorado Shines website, which features a rating system for preschool providers that measures business leadership, the health and safety of children, staff training and supportive environments for families. After reviewing potential matches, ten top choices will be considered.
Finally, families registering through July should complete the UPK application, located at www.upk.colorado.gov. Those who have not registered by the end of July can still work directly with UPK providers to enroll, as space allows.
A Bright Future
Since the creation of UPK, Colorado has moved from No.26 to No.8 in nationwide preschool enrollment, serving over 60% of eligible students. Program administrators are working to make improvements for the 2024-2025 school year, with additional providers and more resources to help improve access.
UPK is an investment into Colorado families and children, providing early learners with the tools and support needed for positive outcomes into the future. After years of activism and advocacy, early childhood education is accessible to all, fulfilling the vision of educators, community leaders, political advocates and families throughout the state.
“We’ve accomplished a lot for our young children, Colorado,” Haynes proudly states. “But there’s more to be done, so let’s not take our feet off the gas – we must all be early childhood advocates!”
Editor’s Note: To read more about the UPK program in the CDEC Family Handbook, visit www.cdec.colorado.gov/universal-preschool-colorado.
