The Preschool Quality Imperative: A Step-by-Step Guide for State Policymakers to Balance Access and Excellence

Overview

The landscape of state-funded preschool education in the United States has reached a historic milestone: more four-year-olds are enrolled than ever before, and total funding has peaked at nearly $14.4 billion. Yet, as the National Institute of Early Education Research (NIEER) highlights in its 2025 Yearbook, this progress is overshadowed by persistent quality concerns. The report likens the pursuit of universal high-quality preschool to a race where some states are near the finish line, others have stumbled, and a few haven't even started. This guide translates the report's findings into actionable steps for policymakers, advocates, and educators. It outlines how to navigate the tension between expanding access and ensuring excellence, using real-world data and proven strategies.

Prerequisites

Before diving into the steps, states must have certain foundational elements in place:

• Accurate enrollment and spending data: Know how many 3- and 4-year-olds are served, and track per-child spending adjusted for inflation.
• Political will and cross-sector collaboration: Early education reforms require buy-in from governors, legislators, school districts, and private providers.
• Baseline quality standards: At minimum, programs should meet NIEER's benchmarks, including teacher qualifications, class size limits, and curriculum requirements.
• Funding flexibility: States need authority to allocate resources toward quality improvements, not just enrollment expansion.

Step-by-Step Guide to Building High-Quality Preschool

Step 1: Audit Your Current Investment and Identify Gaps

Begin by analyzing your state's preschool spending relative to national benchmarks. In the 2024-2025 school year, the average state spent $45 more per child than the previous year—but that's 16 times smaller than the increase from 2023-2024. Only six states (California, Connecticut, Delaware, Michigan, New Mexico, and Washington) spent over $10,000 per child, while New Jersey, Oregon, and D.C. exceeded $15,000. Conversely, 17 states reduced per-child spending when adjusted for inflation. Use these figures to assess where your state stands. For example, if your state is among those that cut funding, identify the causes—budget deficits, falling enrollment, or shifting priorities. Then, model the investment needed to reach at least $10,000 per child, which research links to higher program quality.

Step 2: Prioritize Teacher Compensation

Teacher quality is the single most important factor in classroom effectiveness, yet low pay remains a chronic issue. The NIEER report notes that increased funding can be directed toward improving teacher-to-student ratios and compensation. States like California and New Jersey have shown that robust investment enables better salaries. To replicate this, allocate funds specifically for salary increases, benefits, and professional development. Aim to match compensation with K-12 teachers, reducing turnover and attracting qualified educators. For instance, New Jersey invested an additional $100 million despite a budget deficit—a conscious choice to prioritize early childhood workers.

Step 3: Adopt and Enforce Quality Standards

Access without quality risks creating a two-tiered system of haves and have-nots. NIEER stresses that states must not forget quality as they expand. Establish or reinforce standards in five key areas:

• Teacher qualifications: Require at least a bachelor's degree and specialized training in early childhood education.
• Class size and ratios: Max 20 students with two adults for four-year-olds; smaller for three-year-olds.
• Curriculum: Use evidence-based, developmentally appropriate programs with clear learning goals.
• Family engagement: Mandate home visits, parent conferences, and transition supports.
• Inclusive practices: Ensure support for children with disabilities and dual-language learners.

Regular monitoring and public reporting of quality metrics are essential. NIEER's annual yearbook provides a template for such accountability.

Step 4: Ensure Equitable Access Across Regions and Populations

A major concern is geographic inequity. While states like California, New Jersey, and New York account for 45% of all pre-K spending, other states lag behind. This creates a patchwork where family zip code determines educational opportunity. To close this gap:

• Target underserved communities: Prioritize funding for low-income districts, rural areas, and communities of color.
• Blend funding streams: Combine state pre-K with federal Head Start and child care subsidies to maximize reach.
• Use a sliding-scale model: Charge affluent families modest fees while offering free tuition to those in need.

For example, Oregon and D.C. have demonstrated how reinvesting state funds can expand access without sacrificing quality.

Step 5: Commit to Sustained, Inflation-Proof Funding

The report warns that spending growth is slowing. Many states fell back after a single big increase. To avoid this, embed preschool funding in long-term budget formulas, ideally tied to inflation and enrollment growth. Consider dedicated revenue sources, such as tobacco taxes or property taxes. New Jersey's resilience during a budget deficit shows that funding is a matter of legislative priority, not just fiscal capacity. Have a plan for economic downturns—perhaps a rainy-day fund or federal partnership.

Common Mistakes to Avoid

• Focusing solely on enrollment numbers: Quality must be tracked concurrently. The race metaphor in the NIEER report is a caution against celebrating quantity alone.
• Ignoring inflation adjustments: A nominal increase may be a real cut. Always measure per-child spending in real dollars.
• Underinvesting in teacher pay: Low compensation leads to high turnover and low effectiveness, undermining even the best curriculum.
• Neglecting equity within states: Even high-spending states can have pockets of underfunded programs—ensure funds reach the most vulnerable.
• Treating preschool as a one-time fix: Continuous improvement requires annual data analysis, policy tweaks, and sustained advocacy.

Summary

This guide shows that reaching the preschool finish line demands more than just money; it requires strategic allocation, quality benchmarks, teacher investment, and equitable access. By auditing current spending, prioritizing compensation, enforcing standards, targeting underserved areas, and securing stable funding, states can avoid the haves-and-have-nots divide. The NIEER report's data offers a roadmap—use it to run a smarter race toward universal high-quality pre-K.