California introduces new grade for 4-year-olds, parents weighing enrollment options

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Earlier this month, Governor Gavin Newsom highlighted the success of California’s expansion of transitional kindergarten, indicating that enrollment in the $2.7 billion program had doubled in the past two years. His remarks were in line with those of State Superintendent of Public Instruction Tony Thurmond, who termed the figures “exciting.”

The latest data reveals that enrollment in the free program for 4-year-olds increased from 75,000 two years ago to 151,000 last year—a significant rebound following sharp declines during the pandemic. 

Despite the overall increase in numbers, the proportion of eligible 4-year-olds enrolled in TK actually decreased. With the expansion of the TK age range, the number of eligible children has more than doubled. However, the enrollment percentage dropped by 4 to 7 percentage points between the 2021-22 and 2023-24 school years, depending on the method of calculating the number of eligible children.

CalMatters utilized two methodologies to estimate the enrollment percentage of eligible TK students: using kindergarten enrollment in the same year as a proxy and utilizing population projections from the Department of Finance. Both approaches reflect the same pattern.

Department of Education spokesperson Elizabeth Sanders stated that the department employs a methodology from the Finance Department to determine the percentage of eligible students in TK but did not disclose specifics.

“The trends we observe in the percentages of eligible students whose families enroll in TK align with the patterns indicated by (CalMatters’) dataset,” she remarked. “As the number of eligible students and families expands, we anticipate the enrollment percentage to hover around 70% and increase once fully implemented.”

Sanders indicated that the increase in the number of children attending TK is a positive indicator for the program, which aims to enhance academic performance and social skills, preparing students for the challenges of elementary school.

“Doubling the number of individual students participating in the program during the implementation years is a source of pride for us,” Sanders expressed. 

Supporters of TK noted that the increased enrollments alone warrant celebration, with expectations that the percentage will gradually rise over time.

“This is fantastic, precisely what we desire to see. It demonstrates that schools are rebuilding trust,” commented Patricia Lozano, executive director of Early Edge California, an advocate for early childhood education. “TK is a beneficial choice for families, but it is also advantageous for children. Children need interaction with their peers.”

Transitional kindergarten was never intended to be an exclusive early childhood service for families; rather, it is envisioned as one of several options the state provides, Lozano emphasized. Therefore, any uptick in participation is a reason for optimism.

Transitional kindergarten for all 4-year-olds

The state established transitional kindergarten in 2010, primarily limited to larger districts and accessible solely to children born between September and December. In 2021, Newsom expanded eligibility to include all 4-year-olds eventually. Progressively rolling out, the eligibility window widens slightly each year. By 2025-26, all 4-year-olds will be eligible, and all districts except charters will be mandated to offer it.

Studies have demonstrated that TK and preschool yield numerous benefits for children, such as increased graduation and employment rates, reduced criminal activity in later life, improved overall health, and economic advantages for parents from an additional year of complimentary care for their kids.

Transitional kindergarten is designed to emulate preschool, offering a relaxed setting where children engage in play and learn social skills for most of the day. Typically, youngsters acquire the ability to share, make friends, articulate thoughts, manage emotions, count to ten, recognize basic words, and develop fine motor skills like pencil grip. In contrast to preschool, TK teachers must possess credentials and, by 2025-26, additional units in early childhood education.

Michelle Galindo, a parent in Chula Vista Unified south of San Diego, initially hesitated to enroll her son Roberto in TK. Initial reports of tearful children and inexperienced teachers, coupled with the notion that 4-year-olds seemed too young for school, gave her pause. 

However, she was acquainted with the teacher and trusted her. Her son thrived in the program, gaining independence, fostering friendships, and acquiring knowledge.

“He has developed greater confidence. He asks numerous questions, exhibits more responsibility,” Galindo shared. “Upon starting kindergarten last year, he found it too easy. The teacher noted he was a year ahead. I am truly pleased we enrolled him in TK.”

Wealthier districts slow to open transitional kindergarten

Several hypotheses have been put forth to elucidate the stagnant TK enrollment percentage. One theory posits that not all districts have implemented it yet. Basic aid districts, characterized as affluent districts that forgo state funding in favor of higher local property tax revenue, have been reluctant to establish TK programs, with some opting out altogether. Financial constraints, exacerbated by the absence of state aid, hinder these districts from offering TK courses.

Marin County houses several basic aid districts that have lagged in launching TK programs. Larkspur-Corte Madera School District does not provide TK, citing financial limitations without state assistance. Ross Elementary similarly lacks a TK program. Consequently, Marin boasts one of California’s lowest TK enrollment rates despite pockets of low-income families who could benefit from the free service.

San Francisco Unified boasts one of the state’s lowest TK enrollments, with over four times as many kindergartners as TK students. Statewide, there were 2.4 kindergartners per TK student last year. San Francisco’s limited figures can be attributed to the extensive preschool system the district offers and a decline in the local child population as families relocate to more affordable areas, according to district spokesperson Laura Dudnick. 

School districts also face facility challenges. Establishing new TK classrooms necessitates space, a challenge in rapidly expanding regions of the state. Proposition 2, a $10 billion bond, on the November ballot aims to provide funding for schools to construct and enlarge TK classrooms.

Preschool vs. transitional kindergarten

Another hurdle in TK enrollment is preschool. Apart from private preschools and federally funded Head Start programs, California offers free preschool for low-income families. Some parents prefer keeping their children in preschool due to convenience or program preferences.   

Roslyn Broadnax, a parent in South Los Angeles, harbors skepticism toward the state’s emphasis on TK, fearing it may divert resources from state-funded preschools, longstanding community pillars for many low-income and minority children.

“The existing preschool system has served low-income children, children of color very effectively,” commented Broadnax, associated with Cadre-LA, a nonprofit championing parents in South Los Angeles. “If there’s little differentiation between preschool and TK, why should a parent transition their child to TK? It’s not very logical.”

A recent study from UC Berkeley revealed that the TK expansion negatively impacted state preschools and Head Start, with parents withdrawing their children from these programs. Although the overall count of 3- and 4-year-olds enrolled in early childhood programs increased marginally, Head Start centers in California lost 43,000 preschoolers, while state preschools saw a decline of 9,000 4-year-olds since the TK expansion. This led to closures, teacher shortages, and uncertain prospects in what researchers labeled “pre-K deserts.”

“The critical inquiry is whether more families have access to pre-kindergarten overall. We have been unable to ascertain such access,” stated Bruce Fuller, an education professor at UC Berkeley and a study author. “To claim that TK enrollment doubled compared to a year with numerous closed preschool classrooms (due to COVID) is misleading.”

Another impediment arose during the peak of the COVID-19 epidemic when most preschools shuttered; California guaranteed funding for preschools until 2025. As a consequence, the state is financing undercapacity preschools throughout California, with no incentive for preschools to attract more families, as outlined in the report.

The entirety of California’s early education system is excessively convoluted and bewildering for parents, Fuller and his team concluded. They recommended a simplified, unified system delivering equitable, high-quality, play-based programs across the state. 

Insufficient qualified teachers

Securing adequate staffing has been an ongoing challenge since the inception of TK. Although most school districts manage to recruit enough credentialed teachers, they encounter difficulties in hiring teaching assistants and teachers with the requisite early childhood education credits mandated by 2025-26. At the commencement of the 2022-23 school year, schools reported a 12% vacancy rate for TK teaching assistants, based on a recent report by the Learning Policy Institute.

Ericka Hill, a parent in Los Angeles, recounted her son’s experience in a combined kindergarten-TK classroom, with a substitute teacher for half the year. The substitute lacked early childhood education expertise and assigned worksheets for the children to take home daily.

“I believe a 4-year-old should not be confined to a desk. The environment needs to be age-appropriate,” Hill emphasized. “He resisted doing the work. It posed challenges for all of us.”

San Diego, Los Angeles, Sonoma, Orange, and Ventura counties boast some of the highest TK enrollment rates, partly due to extensive outreach initiatives targeting parents. Bus ads, billboards, online campaigns, and flyers at daycare centers and preschools all contributed to attracting new families.

Garden Grove Unified, predominantly a low-income district in northern Orange County, swiftly expanded its TK program, incurring hefty fines from the state for allegedly enrolling students ineligible at the time and failing to meet subsequent student-teacher ratios. While contesting the penalties, the district ensured nearly all eligible children were enrolled.

“We predicted that our families would eagerly enroll at the earliest opportunity,” stated district spokesperson Abby Broyles. “We launched an outreach campaign to disseminate information. … Our families have praised the high-quality TK they have received.”