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As Colorado’s universal preschool program moves into its second school year this month, officials are hoping to leave its rocky rollout in the rearview mirror.

By the end of July, more than 31,000 4-year-olds matched with state-funded preschool providers for the coming year, according to the most recent data for the core program from the Colorado Department of Early Childhood. Most will receive up to 15 hours of free classtime per week, though about 11,100 of them — about 3,000 more than last year — are expected to qualify for 30 hours each week, after state officials expanded eligibility criteria for the extra class time.

The number of providers participating in the program — in-home day cares, private practices, religious schools and public schools — has grown by about 150, to more than 2,000 statewide for this school year, Universal Preschool Program Director Dawn Odean said.

Taken together, that data points to the year-two stabilization of a program whose inaugural year, hiccups and all, was akin to “building the plane as we were flying it,” Odean said.

Colorado’s program was officially born in April 2022, when Gov. Jared Polis signed the bill to create it and the new Colorado Department of Early Childhood. The program was set for a fall 2023 launch. That left about 16 months to stand up the department, bring about 1,800 participating providers into the new system and sign up tens of thousands of families.

Officials also had to find and fill the gaps between concept and reality — including budget crunches caused by a participation rate about 20% higher than expected.

But entering year two of the $344 million program, Odean and local coordinating organizations are hopeful the initial struggles were growing pains associated with its launch. Department officials expect to meet or surpass last year’s sign-up numbers soon, and they hope to see enrollment increase by up to 5%.

“In a nutshell, I’ll tell you things are much better,” said Elsa Holguín, president and CEO of the Denver Preschool Program. It’s one of the local coordinating organizations, or LCOs, that act as a link between the state department and on-the-ground providers. “Things have gotten better for the families, things have improved for the child care providers and things have improved for the LCOs.”

But, she added, there’s always room for refinement.

“Are we where we need to be? No. We still have some work to do across the spectrum,” Holguín said.

The rollout of year two is still underway, with parents now able to walk through local providers’ doors to sign up for free preschool, space permitting, rather than being required to apply online. The full enrollment figures for this year won’t be available until the fall.

Adapting to last year’s high enrollment

Ahead of last year’s launch, expectations for the first year began shifting about as soon as public planning for it began.

A promise of 10 hours a week of free classtime for all preschoolers turned into 15, with some students qualifying for double that time — considered full-day schooling — based on family circumstances. But months later, officials raised the threshold to qualify for 30 hours as overall enrollment rates shot up about 20% higher than expected, leaving some families feeling like the rug was yanked out from under them.

Initially, the state had planned to offer extra time to children deemed at risk if they qualified under an eligibility category — by having an individualized education plan, being a dual-language learner, coming from a low-income family or being in foster care.

When demand outpaced expectations, state officials changed the criteria to add base household income limits, at a middle-class level, as an additional qualification. Students still had to qualify under at least one other factor.

Meanwhile, providers and families were chafing at a confusing enrollment process that drew critical attention from state lawmakers.

But officials point to a number of under-the-hood changes since then to smooth out operations.

Voters in November approved a ballot measure last fall that allowed the state to keep $23.7 million in excess tobacco tax proceeds that help pay for the program. Officials expanded the criteria for 30 hours of free classtime to include all families who are at or below the federal poverty line, expanding access to some 3,000 more children. And the state streamlined enrollment processes to smooth out some of those first-year wrinkles.

“We’re ecstatic with year one as far as the number of children served and the number of providers participating — but (we) certainly knew that we stood up the program, and the process to enroll and register, in a fairly compressed timeline, which created some challenges,” said Odean, the state’s preschool program director, in an interview this week.

She also acknowledged the legal battles that played out in the first year.

A group of school districts had sued over the rollout, claiming that it hurt students with special needs and left school districts in a lurch. A judge ruled in July that the districts lacked standing to sue, while also acknowledging the “headaches” they faced, according to Chalkbeat.

In a separate January lawsuit, two Catholic schools sued over a nondiscrimination clause for preschool providers. That suit was largely rejected, but not before the state removed the nondiscrimination clause. About 40 religious schools are registered as universal preschool providers in the state this school year.

Odean said she couldn’t comment on the particulars of the lawsuits, but she appreciated the conversations they spurred about how to make sure families get the preschool they want — even if she wished they didn’t take the form of litigation.

Private providers’ low enrollments “concerning”

When it came to preparing for school this year, Holguín, the Denver Preschool Program’s CEO, said preregistration for families and other changes to enrollment, in particular, “changed our world” by making it easier to connect them with preschool providers.

Diane Smith, director of the Douglas County Early Childhood Council, another LCO, likewise said the state’s program is better positioned this year “in many ways” — though it’s still too early to make a definitive call.

She still identified a number of focus areas for the future, including a desire for more lead time between announced changes to the program and when they’re implemented, along with more predictable, consistent funding for providers. And, of course, the unending work of making sure every family that wants to participate knows about the program and how to enroll in it.

In short, the first-year growing pains haven’t quite waned, Smith said, even as she excitedly reports that more providers have signed up to provide universal preschool in her area.

“Some people are bigger worriers than I am,” Smith said. “I’m the type who says ‘Yes, this is a little bit of a challenge, but I think intentions are always good.’ We’re looking to move forward and we have.”

Dawn Alexander, executive director of the Early Childhood Education Association of Colorado, which advocates for private preschool providers, warned that some of her members were starting to fret about “concerning” low early enrollment numbers — though she, too, cautioned that it was too early to raise a red flag.

Many families seem to be choosing school districts’ programs for their 4-year-olds, Alexander said, meaning that private preschools lose out on those enrollments. The older, less care-intensive preschool children help round out the rosters of many facilities that also provide day care for infants and toddlers, she said. Losing those populations can put their entire business at risk.