Proposition 82—California’s 'Preschool for All' Initiative

This policy brief examines California’s Proposition 82, the "Preschool for All" initiative, which aimed to provide at least $23 billion over the next decade to enroll about 70 percent of the state’s four-year-olds in half-day preschool programs at no direct cost to parents. California’s current preschool enrollment rate is approximately 64 percent, with around 334,000 four-year-olds attending preschool centers of varying quality. A key concern is whether community-based preschools—currently serving the majority of children—would survive in areas where public schools offer free preschool programs funded through Proposition 82. Additionally, enrollment slots vary widely across counties, from 28 slots per 100 children in San Francisco to just 11 in Riverside County.

Research findings on the benefits of preschool are mixed. While small-scale studies like the Perry Preschool experiment have shown lasting benefits for poor children, larger studies tracking children through preschool and into elementary school report cognitive benefits fading by third grade. However, some benefits, such as reduced grade repetition and lower special education referrals, persist. Evaluations of state preschool programs reveal mixed results, with strong gains observed in Oklahoma’s preschool program but not in Georgia’s. Advocates of universal preschool argue that improved quality standards will enhance benefits, though research suggests quality improvements are most effective when focused on specialized training rather than requiring a bachelor’s degree for all teachers.

Proposition 82 would channel funds through county education offices, which could contract with school districts or community organizations to provide preschool slots. However, concerns exist over potential biases toward funding school-based programs rather than community agencies. The initiative would mandate alignment with statewide academic standards, potentially emphasizing academic knowledge over broader developmental goals. Additionally, Proposition 82 could disproportionately benefit affluent families already paying for preschool and may not adequately address disparities in access for low-income children. Without mechanisms to adjust funding for regional disparities or developmental needs, Proposition 82’s uniform funding structure may reinforce existing inequalities across counties.