How California Districts Create Access and Coherent Systems
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California’s ambitious investment in Universal Transitional Kindergarten (UTK) reflects a commitment to providing access to UTK for all 4-year-olds in public schools by the 2025–26 academic year. However, the implementation of transitional kindergarten (TK) presents challenges for districts in aligning this new grade coherently with existing grade levels and prekindergarten (PK) options within the context of the mixed-delivery model. This model adds complexity to achieving coherence as students transition from PK or TK to the existing district system.
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California’s Transitional Kindergarten (TK) program provides an additional year of schooling within the K–12 system that aims to prepare children for kindergarten. Launched a decade ago with limited eligibility, the program will be expanded to all four-year-olds by 2025–26. Little is known about TK’s longer-term impact—especially among multilingual students and students with disabilities, who might benefit from early identification. Taking stock of TK’s impact so far can help the state expand it successfully.
What Districts Need to Fulfill Its Promise
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California's Universal Transitional Kindergarten (UTK) faces challenges as districts prioritize meeting state requirements, hindering focus on quality. To address this, the state can incentivize districts by setting a vision, establishing goals, and measuring progress based on enrollment, implementation features, and student outcomes. It should align resources and support for widespread high-quality UTK implementation, while ensuring public communication of key aspects and outcomes to empower communities to monitor district performance.
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As California's elementary schools reopen, attention to healing the school community is crucial. When students return, they will need to reconnect with friends and teachers. Recess provides an ideal opportunity for play and can support healing and prepare students to return to learning. Schools should prioritize providing safe opportunities for play to rebuild the school community and support students' well-being.
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The Quality Rating and Improvement System (QRIS) aims to improve early childhood education quality, assuming quality can be measured and ratings correspond to learning outcomes. A review of the California QRIS found weak associations between ratings and outcomes. The report recommends creating better-aligned measures, including teacher qualifications, program observation, and differentiation for age groups, as well as considering work environment and pay. Cutoff scores and comprehensive outcome measures should also be examined.
A Summary of the PACE Policy Research Panel
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Over 725,000 California K-12 students received special education services in 2018-19, but the system is not always equipped to serve them. Early screening, identification, and intervention, as well as better transitions, educator support, and mental/physical health services, need improvement. A Multi-Tiered System of Supports (MTSS) framework in schools could address SWDs' needs, but it requires additional resources and policy support to improve educator capacity and collaboration between agencies while systematizing data on SWDs.
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Only 10% of eligible infants and toddlers with developmental delays nationwide receive early intervention services, and CA serves fewer children than the national average. This is due to challenges such as spotty screening, tenuous linkages to referral and evaluation, and crossing multiple agencies. Massachusetts has a unified early childhood data system and robust interagency linkages, resulting in a greater percentage of their infant and toddler population served. Implementing a unified data system and interagency streamlining in CA could increase the number of children and families served.
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California is failing to identify and serve infants, toddlers, and preschoolers with developmental disabilities compared to national averages. The transition from infant/toddler services to preschool services is hindered by various factors such as the lack of a systematic screening and child tracking system, interagency coordination, and family/staff preparation for transitions. Significant investments are required to improve the state of early education for children with disabilities in California.
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This brief outlines the necessary steps to integrate care systems and improve outcomes for California's children. It suggests forming a statewide interagency leadership council and recommends policy reforms to promote collaboration, integration, and service delivery. The goal is to create a "Whole System" approach that integrates child-serving agencies and organizations. A full commitment from the state administration is needed to achieve these solutions at scale.
Views from the 2020 PACE/USC Rossier Poll
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In the run-up to 2020 elections, where do California voters stand on key education policy issues? This report examines findings and trends from the 2020 PACE/USC Rossier poll. Key findings include rising pessimism about California education and elected officials, continued concern about gun violence in schools and college affordability, and negative opinions about higher education. However, there is substantial support for increased spending, especially on teacher salaries.

A Progress Report One Year After Getting Down to Facts II
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The 2018 Getting Down to Facts II research project drew attention to California’s continued need to focus on the achievement gap, strengthen the capacity of educators in support of continuous improvement, and attend to both the adequacy and stability of funding for schools. Based on the nature of the issues and the progress made in 2019, some clear next steps deserve attention as 2020 unfolds.

Challenges and Opportunities in California
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California Governor Gavin Newsom prioritized early childhood education with new funding. However, sustaining and building on preK progress remains challenging. PreK–3 alignment has shown to be effective in coordinating standards, curricula, instruction, assessments, and professional development. This study examines California’s preK–3 alignment landscape to better understand the challenges and recommends policy implications to prioritize alignment, offer training, and streamline licensing requirements.
School Finance and Governance in California
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Getting Down to Facts is an extensive investigation of CA's public education system commissioned by a bipartisan group of CA leaders. The project aimed to describe California's school finance and governance systems, identify obstacles hindering resource utilization, and estimate costs to achieve student outcome goals. The project resulted in 23 reports by scholars, which highlight that the current school finance and governance systems fail to help students achieve state performance goals, particularly those from low-income families. The reports provide a framework for assessing reform options.
Preschool and K–12 Finance Reform in New Jersey and Texas
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This report examines factors that affect student achievement in California schools, finding that family background and school context are important determinants. The report recommends that schools focus on providing high-quality instruction, improving reading and math skills, and creating a positive school climate. Policymakers should increase resources for under-resourced schools and promote parental involvement. Continued research is needed to better understand the complex factors that shape student outcomes.
California Preschool Directors Speak on Policy Options
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This report discusses the potential of integrating academic and occupational content through Career-Technical Education (CTE)/multiple pathways to improve California's high schools. This approach can enhance student motivation and engagement in school, improve employment and earnings after graduation, and provide more opportunities for students. They suggest building on existing practices in career academies, restructured high schools, and community colleges, but note that additional funding, technical assistance, and professional development will be necessary to support this approach.
Issues, Evidence, and Resources
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This brief provides an overview of California's existing network of preschool centers and the potential impact of Proposition 82, which would provide funding for half-day preschool programs for 70% of the state's four-year-olds. PACE, an independent research center, aims to clarify evidence informing education policy options. A 2005 PACE review focused on enrollment patterns and policy options for improving access and quality of local preschools.
The Influence of Preschool Centers on Children’s Social and Cognitive Development
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Using national data from the Early Childhood Longitudinal Study (ECLS-K), this study examines the association between center-based care duration and intensity and pre-reading, math skills, and social behavior of young children. Children who start center care between ages two and three see greater academic gains, while starting earlier than age two may have negative social effects. Center intensity impacts academic gains for poor and middle-income children, but not wealthier children, and negatively impacts social development for Blacks and whites but not Hispanic children.
The Influence of Preschool Centers on Children’s Development Nationwide
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This report examines the effects of preschool or childcare exposure on cognitive and social development before kindergarten, focusing on intensity and duration of attendance, and how this varies across different income and ethnic groups. The authors utilize data from a nationally representative sample of young children with rich family background information. Findings are important for debates over extending free preschool and which groups of children would most benefit.
PACE Research and Policy Options
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PACE researchers are studying the effects of early care and education in California and nationwide, working with the Language Minority Research Institute. We also are illuminating policy alternatives and evidence that advocates might consider. Here is an infographic listing related and relevant publications.
Ideals, Evidence, and Policy Options
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Many California children benefit from preschooling, but enrollment rates are lower for poor and working-class families. Quality is uneven, and policy makers must address key questions regarding expanding and improving preschooling, including who should benefit and who should pay, who should operate it, how to improve quality, and how to structure it for diverse families. Evidence can inform policy options, which stem from differing ideals about preschooling. Nationwide evidence is considered in this review.
Centers and Home Settings that Serve Poor Families
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This paper analyzes the observed quality of center-based care and nonparental home settings for low-income children in five cities. The study finds that centers had higher mean quality in terms of provider education and structured learning activities, but variability existed among providers. Contextual neighborhood attributes had a stronger influence on provider quality than family-level selection factors. The policy implications of such disparities in care quality are discussed, including strengthening regulatory or quality improvement efforts.
Promising Benefits, Unequal Access
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This policy brief examines how California's education governance has shifted from local control to centralized, administrative accountability over the past 30 years, including changes in school finance. It primarily focuses on categorical program funding, assessing its impact on equity, adequacy, flexibility, choice, efficiency, predictability, stability, rationality, and accountability. The authors also propose alternative models to the existing system of categorical funding.
Early Learning Effects of Type, Quality, and Stability
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This report examines the effects of center care and home-based care on cognitive and social development of young children in poor communities, as well as the impact of caregiver sensitivity and education level. The study used a sample of children whose mothers entered welfare-to-work programs and found positive cognitive effects for children in center care, and stronger cognitive and social development for those with more sensitive and educated caregivers. However, children in family child care homes showed more behavioral problems.
Implementation of Training and Retention Initiatives in the Bay Area
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The early care and education (ECE) profession faces staffing problems due to understaffed centers, high turnover rates, and an educationally bifurcated workforce. To mitigate this issue, programs like the California Childcare Retention Incentive (CRI) provide monetary stipends to ECE professionals who meet tenure and education requirements. This policy brief summarizes findings from a two-year evaluation of CRI programs in Alameda and San Francisco counties, focusing on themes relevant to Year 2 implementation.
Year 2 Qualitative Implementation Study (QIS)
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This paper assesses the perspectives and experiences of stakeholders on San Francisco County’s CARES program, a childcare retention–incentive program. Year 2 saw over a threefold increase in the number of stipends awarded, but recipients felt the program couldn't address ECE staff retention/turnover alone. Solutions need to be implemented within a larger system of support, raising public awareness, expanding professional development opportunities, and exerting pressure on policymakers for sustained funding to augment ECE staff salaries.