Early Childhood Programs: Multiple Programs and Overlapping Target Groups
(Fact Sheet, 10/31/94, GAO/HEHS-95-4FS).
This report responds to a congressional request for information on early
childhood programs--that is, preschool and child care programs for
children from birth through age five. In summary, GAO found that in
fiscal years 1992 and 1993, the federal government funded more than 90
early childhood programs in 11 federal agencies and 20 offices. Of these
programs, 34 were key programs--early childhood programs for which early
childhood education or child care is the key to the program's mission.
These key programs delivered services to at least two million children
below age five and spent at least $3.66 billion in fiscal year 1992.
However, data are limited on the exact number of children served and the
dollars spent on children below age five. Although these programs have
some similarities, they may target different populations, use different
eligibility criteria, and provide a different mix of services to
children and their families.
--------------------------- Indexing Terms -----------------------------
REPORTNUM: HEHS-95-4FS
TITLE: Early Childhood Programs: Multiple Programs and Overlapping
Target Groups
DATE: 10/31/94
SUBJECT: Aid to families with dependent children
Disadvantaged persons
Children
Child care programs
Eligibility criteria
Preschoolers
Head-start programs
Educational programs
Welfare services
Budget authority
IDENTIFIER: AFDC/JOBS Child Care Program
AFDC Transitional Child Care Program
AFDC
HHS At-Risk Child Care Program
Child Care and Development Block Grant
Dept. of Education Chapter 1 Program for Educationally
Disadvantaged Children
Community Services Block Grant
HHS Child Development Associate Scholarship Program
Even Start Family Literacy Program
Even Start--Indian Tribes and Tribal Organizations Program
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Cover
================================================================ COVER
Fact Sheet for the Chairman, Subcommittee on Labor, Health and Human
Services, Education, and Related Agencies, Committee on
Appropriations,
U.S. Senate
October 1994
EARLY CHILDHOOD PROGRAMS -
MULTIPLE PROGRAMS AND OVERLAPPING
TARGET GROUPS
GAO/HEHS-95-4FS
Multiple Early Childhood Programs
Abbreviations
=============================================================== ABBREV
AFDC - Aid to Families with Dependent Children
CFDA - Catalog of Federal Domestic Assistance
ESEA - Elementary and Secondary Education Act
FFY - federal fiscal year
HHS - Department of Health and Human Services
HUD - Department of Housing and Urban Development
JOBS - Job Opportunities and Basic Skills
OMB - Office of Management and Budget
Letter
=============================================================== LETTER
B-256215
October 31, 1994
The Honorable Tom Harkin
Chairman, Subcommittee on Labor, Health
and Human Services, Education,
and Related Agencies
Committee on Appropriations
United States Senate
Dear Mr. Chairman:
In recent years, the Congress has recognized the importance of
providing preschool programs for disadvantaged children and child
care for low-income families to help them attain self-sufficiency.
For example, in light of National Education Goal One--which states
that by the year 2000 all disadvantaged children will enter school
ready to learn--the Congress has consistently increased the budget
for the Head Start program in recent years. In addition, the
Congress has also created four new child care programs for low-income
families since 1988.\1 These preschool and child care programs target
children at similar ages, and some may provide similar services. At
the same time, these federally funded programs are often designed for
different purposes, and some programs may be more comprehensive or
costly than others. Currently, federally funded child care and
preschool programs are not operating in an integrated system.
Previous GAO work in other areas indicates that a patchwork of
programs may not provide the most efficient use of resources or
provide individuals with needed services.\2 In light of our previous
work, you requested that we provide you with information on early
childhood programs--that is, preschool and child care programs for
children from birth through the age of 5. Specifically, you were
interested in (1) the total number of federally funded early
childhood programs (excluding Department of Defense programs and tax
credits) providing education or child care to children; (2) the
budget authority for key programs--that is, early childhood programs
for which early childhood education or child care is key to the
mission of the program; (3) the number of children served by these
key programs; (4) the eligibility criteria for the key programs; and
(5) differences in services across key programs.
To address your request, we reviewed the Catalog of Federal Domestic
Assistance, reviewed previous GAO studies of multiple programs, and
surveyed program officials from key programs. We did this analysis
to provide you with information to assist in determining the level of
federal funding for each of the early childhood education and child
care programs in light of caps on discretionary spending.
In summary, we found that in federal fiscal years 1992 and 1993, the
federal government funded over 90 early childhood programs in 11
federal agencies and 20 offices. Of these programs, 34 were key
programs. These key programs provided services to at least 2 million
children below age 5 and spent at least $3.66 billion in federal
fiscal year 1992.\3 However, data are limited on the exact number of
children served and the dollars spent on children below age 5.
Although these programs have some similarities, they may target
different populations, use different eligibility criteria, and
provide a different mix of services to children and their families.
--------------------
\1 These four programs are (1) Aid to Families with Dependent
Children (AFDC)/Job Opportunities and Basic Skills (JOBS) Child Care,
(2) AFDC Transitional Child Care, (3) At-Risk Child Care, and (4) the
Child Care and Development Block Grant.
\2 Multiple Employment Programs: National Employment Training
Strategy Needed (GAO/T-HRD-93-27, June 18, 1993), Multiple Employment
Training Programs: Conflicting Requirements Hamper Delivery of
Services (GAO/HEHS-94-78, Jan. 28, 1994), and Multiple Employment
Training Programs: Most Federal Agencies Do Not Know If Their
Programs Are Working Effectively (GAO/HEHS-94-88, Mar. 2, 1994).
\3 You requested that we provide data on numbers of children served
and budget authority for federal fiscal year 1992.
OVER 90 EARLY CHILDHOOD
PROGRAMS FUNDED
------------------------------------------------------------ Letter :1
In fiscal years 1992 and 1993, over 90 early childhood programs in 11
federal agencies and 20 offices were funded by the federal government
(see section 1). For example, the Department of Education had six
offices that funded childhood programs, and the Department of Health
and Human Services (HHS) had two offices that funded such programs.
Of the programs identified, we defined 34 as "key"--that is,
education or child care were key to the mission of the program.
Examples of key programs are HHS' Head Start program, which provides
education and developmental services to young children, and the
Department of Education's Chapter 1 program, which provides preschool
education to young children.
The remaining programs either allowed early childhood activities to
be funded as one of many activities or supported the provision of
early childhood activities. An example of a program that allowed
early childhood activities is HHS' Community Services Block Grant.
In this program, grantees could have used funds to provide early
childhood activities, but these activities were not funded through a
separate line item. Further, early childhood activities were not key
to the mission of this program. An example of a program that
supported the provision of early childhood education or child care is
HHS' Child Development Associate Scholarship program, which provides
funding for the training of early childhood teachers.
AT LEAST $3.66 BILLION
AUTHORIZED FOR KEY EARLY
CHILDHOOD PROGRAMS
------------------------------------------------------------ Letter :2
In federal fiscal year 1992, the 22 key programs that could provide
data on dollars targeted to children from birth through the age of 5
had budget authority of $3.66 billion. The remaining key programs
were unable to provide data on children from birth through the age of
5. However, these programs had total budget authority of $3.71
billion for children of all ages, some of whom were birth through the
age of 5. (See section 2.)
KEY EARLY CHILDHOOD PROGRAMS
PROVIDED SERVICES FOR AT LEAST
2 MILLION CHILDREN
------------------------------------------------------------ Letter :3
The 18 key early childhood programs that were able to provide data on
the number of children served from birth through age 5 reported a
combined total of 2 million children served in fiscal year 1992. The
remaining key programs were unable to provide data specifically on
children from birth through age 5. However, eight of these programs
provided services to over 900,000 children of all ages. The total
number of children served by these programs may be overestimated
because some programs may have provided services to the same
children. For example, a 3-year-old with a disability may receive
services under the Department of Education's Special
Education--Preschool Grants (Section 619) as well as under Special
Education--Grants to States (Part B).
MULTIPLE PROGRAMS TARGET
DISADVANTAGED CHILDREN
------------------------------------------------------------ Letter :4
Of the key programs we identified, 13 targeted economically
disadvantaged children from birth through age 5. As a result, one
disadvantaged child could potentially have been eligible for as many
as 13 programs (see section 4 and fig. 1).\4 However, many programs
reported serving only a portion of their target population and
maintaining long waiting lists. Further, in 1990 (the most recent
year for which comprehensive data were available) most disadvantaged
preschool-aged children did not participate in any type of preschool
program.\5
Figure 1: One Disadvantaged
Child Eligible for Many
Programs
(See figure in printed
edition.)
The current "system" of multiple categorical programs with firm
eligibility cutoffs may lead to disruptions in services from even
slight changes in the child's family status.\6 For example, a child
who lived in a family of four with an annual income of $14,335 at the
beginning of the year\7 might be eligible for many of the programs;
however, if the family moved or if family income or work status
changed slightly, the child might not continue to be eligible for any
of the programs.
--------------------
\4 Some of these programs have additional criteria. For example,
Even Start--Indian Tribes and Tribal Organizations requires that the
child be Native American.
\5 See Poor Preschool-Aged Children: Numbers Increase but Most Not
in Preschool (GAO/HRD-93-111BR, July 21, 1993).
\6 See Child Care: Working Poor and Welfare Recipients Face Service
Gaps (GAO/HEHS-94-87, May 13, 1994).
\7 The Office of Management and Budget defines poverty as families of
four with an annual income below $14,335. Many programs use this as
an eligibility cutoff. This annual income would also place a child
below 75 percent of the median state income in some states.
SIMILAR SERVICES PROVIDED FOR
MANY KEY EARLY CHILDHOOD
PROGRAMS
------------------------------------------------------------ Letter :5
In fiscal year 1992, 31\8 of the 34 key early childhood programs
provided education/child development for young children, and 27 of
the 34 provided child care, health referral, and social services
referral.\9 However, fewer programs provided temporary care, dental
services, and direct health services. (See section 5 and fig. 2.)
Figure 2: Services Provided by
Key Programs
(See figure in printed
edition.)
--------------------
\8 The Family Resource and Support Program did not exist until
federal fiscal year 1993. For this program, data are provided for
federal fiscal year 1992.
\9 Information on the services provided by these programs was
obtained from program officers in response to a GAO questionnaire
asking program officers about categories of services. Program
officers indicated that variability exists within these categories.
KEY PROGRAMS DIFFERED IN
COMPREHENSIVENESS OF SERVICES
------------------------------------------------------------ Letter :6
Key early childhood programs varied in the comprehensiveness of the
services they provided. While 8 programs provided 11 or more early
childhood services, 6 programs provided 3 or fewer early childhood
services. Head Start, the Comprehensive Child Development Centers,
the Even Start Family Literacy Program, and Even Start--Indian Tribes
and Tribal Organizations each provided or funded 11 or more services.
By contrast, programs such as AFDC/JOBS Child Care, the Child Care
and Development Block Grant, and AFDC Transitional Child Care each
funded three or fewer early childhood services, according to the data
available for these programs.\10 (See section 5.)
--------------------
\10 These programs did not collect data on all services provided.
---------------------------------------------------------- Letter :6.1
We did not request written agency comments on this fact sheet. We
did, however, discuss the draft with agency officials, who generally
agreed with the way in which we characterized the data. They
provided technical comments on the data, which we have incorporated
as appropriate.
We will send copies of this fact sheet to agency officials and to
other interested parties. We will also make copies available to
others on request. If you have any questions about this fact sheet,
please call me on (202) 512-7014. Major contributors are listed in
appendix II.
Sincerely yours,
Linda G. Morra
Director, Education and
Employment Issues
OVER 90 EARLY CHILDHOOD PROGRAMS
EXIST IN 11 FEDERAL AGENCIES
============================================================ Chapter 1
From our review of the Catalog of Federal Domestic Assistance,\11 our
review of the literature, and our discussions with agency officials,
we identified 93 federal programs that provided some type of early
childhood education or child care assistance (see fig. 1.1). Our
definition of "programs" includes those that provide grants,
scholarships, agency child care activities, and preschool programs.
Of the 93 programs, we defined 34 (identified with an asterisk) as
"key." Where applicable, we include the common name of the program.
We also include, where applicable, an identification number for
programs listed in the Catalog of Federal Domestic Assistance, which
describes all domestic assistance programs. For additional detailed
information on the objectives, types of assistance, uses and
restrictions, examples of applicant eligibility, and examples of
beneficiary eligibility for all programs, see the catalog.
Figure 1.1: Agencies That
Provide Early Childhood
Education/Child Care Programs
(See figure in printed
edition.)
(See figure in printed
edition.)
ACTION
1. VISTA (72.003)
Total: 1 program
DEPARTMENT OF AGRICULTURE
1. Child and Adult Care Food Program (10.558)
2. Food Distribution (Food Donation Program) (10.550)
3. Food Stamps (10.551)
4. Special Milk Program for Children (10.556)
5. State Administrative Expenses for Child Nutrition (10.560)
6. Summer Food Service Program for Children (10.559)
Total: 6 programs
APPALACHIAN REGIONAL COMMISSION
1. Appalachian Child Development* (23.013)
Total: 1 program
DEPARTMENT OF EDUCATION
1. Bilingual Education* (84.003)
2. Children and Youth with Serious Emotional Disturbance (84.237)
3. Early Education for Children with Disabilities (84.024)
4. Education of Handicapped Children in State-Operated or -Supported
Schools* (Chapter 1, ESEA\12 Handicapped) (84.009)
5. Education for Homeless Children and Youth-- Grants for State and
Local Activities* (84.196)
6. Educational Research and Development (84.117)
7. Even Start--Indian Tribes and Tribal Organizations* (84.258)
8. Even Start--Migrant Education* (84.214)
9. Even Start--State Educational Agencies* (Even Start Family
Literacy) (84.213)
10. Federal Pell Grant Program (84.063)
11. Federal Perkins Loan Program (formerly National Direct Student
Loans) (84.038)
12. Federal Family Education Loans (formerly Guaranteed Student
Loans) (84.032)
13. Federal, State, and Local Partnerships for Educational
Improvement* (Chapter 2, State Block Grants) (84.151)
14. Federal Supplemental Educational Opportunity Grants (84.007)
15. Federal Work-Study Program (84.033)
16. First Family School Partnership (84.212)
17. Follow Through* (84.014)
18. Grants to States for State Students' Incentives (84.069)
19. Migrant Education--Basic State Formula Grant Program* (84.011)
20. National Workplace Literacy Program (84.198)
21. Native Hawaiian Family-Based Education Centers* (84.209)
22. Native Hawaiian Special Education* (84.221)
23. Rehabilitation Services--American Indians with Disabilities
(84.250)
24. School Dropout Demonstration Assistance (Dropout Prevention
Program) (84.201)
25. Services for Children with Deaf-Blindness* (Services for
Deaf-Blind Children and Youth) (84.025)
26. Special Education--Innovation and Development (Research and
Demonstration Projects in Education for the Disabled) (84.023)
27. Special Education--Infants and Toddlers* (Part H Special
Education) (Not in catalog; identified by Department)
28. Special Education--State Grants* (Part B Special Education)
(84.027)
29. Special Education--Preschool Grants* (Section 619 Special
Education) (84.173)
30. Special Education--Regional Resource and Federal Centers
(84.028)
31. Special Education--Severely Disabled Program (Program for
Children with Severe Disabilities) (84.086)
32. State Program Improvement Grants* (Chapter 1) (84.218)
33. Training in Early Childhood Education and Violence Counseling
(84.266)
34. Vocational Education--Basic Grants to States (84.048)
Total: 34 programs
GENERAL SERVICES ADMINISTRATION
1. Donation of Federal Surplus Personal Property (39.003)
Total: 1 program
DEPARTMENT OF HEALTH AND HUMAN
SERVICES
1. Abandoned Infants* (93.551)
2. Adoption Opportunities (93.652)
3. Child Abuse and Neglect Discretionary Activities (93.670)
4. Child Abuse and Neglect State Grants* (93.669)
5. Child Abuse and Neglect State Prevention Grants* (93.672)
6. Child Care for Families At Risk of Welfare Dependency* (At-Risk
Child Care) (93.574)
7. Child Development Associate Scholarships (93.614)
8. Child Welfare Research and Demonstration (93.608)
9. Child Welfare Services Training Grants (93.648)
10. Child Welfare Services--State Grants (93.645)
11. Community Services Block Grant--Discretionary Awards (93.570)
12. Comprehensive Child Development Centers* (93.666)
13. Comprehensive Residential Drug Prevention and Treatment Projects
for Substance-Using Women and Their Children* (Comprehensive
Residential Drug Treatment Projects) (93.937)
14. Emergency Community Services for the Homeless (93.572)
15. Emergency Protection Grants--Substance Abuse* (93.554)
16. Family Resource and Support Program* (93.580)
17. Family Support Payments to States--Assistance Payments* (AFDC\13
Transitional Child Care) (93.560)
18. Family Violence Prevention and Services (93.671)
19. Grants to States for Planning and Development of Dependent Care
Programs (Dependent Care Planning and Development) (93.673)
20. Head Start* (93.600)
21. Head Start-HUD*\14
(not in catalog; identified by Department)
22. Homeless Families Support Services Demonstration Program (Family
Support Centers) (93.578)
23. Job Opportunities and Basic Skills Training* (AFDC/JOBS\15 Child
Care) (93.561)
24. Payments to States for Child Care Assistance* (Child Care and
Development Block Grant) (93.575)
25. Refugee and Entrant Assistance-- State-Administered Programs
(93.566)
26. Refugee and Entrant Assistance-- Discretionary Grants (93.576)
27. Social Services Block Grant* (Title XX) (93.667)
28. Temporary Child Care and Crisis Nurseries* (93.656)
Total: 28 programs
DEPARTMENT OF HOUSING AND URBAN
DEVELOPMENT
1. Community Development Block Grants/Entitlement Grants (14.218)
2. Community Development Block Grants/Small Cities Program (14.219)
3. Emergency Shelter Grants Program (14.231)
4. Lower Income Housing Assistance Program (Section 8 New
Construction/Substantial Rehabilitation) (14.182)
5. Supplemental Assistance for Facilities to Assist the Homeless
(McKinney Act) (14.236)
6. Supportive Housing Program (Transitional Housing) (14.235)
Total: 6 programs
DEPARTMENT OF THE INTERIOR
1. Indian Child Welfare Act--Title II Grants (15.144)
2. Indian Education--Assistance to Schools (15.130)
3. Indian Social Services--Child Welfare Assistance (15.103)
4. Family and Child Education* (FACE) (not in catalog; identified by
Department)
Total: 4 programs
DEPARTMENT OF JUSTICE
1. Cuban and Haitian Entrant Resettlement Program (16.201)
2. Part D--Juvenile Gangs and Drug Abuse and Drug Trafficking
(16.544)
Total: 2 programs
DEPARTMENT OF LABOR
1. Employment and Training Assistance-- Dislocated Workers (17.246)
2. Job Corps* (Not in Catalog)
3. Job Training Partnership Act (JTPA) (17.250)
4. Migrant and Seasonal Farmworkers (17.247)
5. Native American Employment and Training Programs (17.251)
6. Senior Community Service Employment Program (Older Worker
Program) (17.235)
7. Women's Special Employment Assistance (Women's Bureau) (17.700)
Total: 7 programs
SMALL BUSINESS ADMINISTRATION
1. Business Development Assistance to Small Business (59.005)
2. Small Business Investment Companies (59.011)
3. Small Business Loans (59.012)
Total: 3 programs
Grand total: 93 programs
--------------------
\11 Executive Office of the President, Office of Management and
Budget (Washington, D.C.: Dec. 1993).
\12 Elementary and Secondary Education Act.
\13 Aid to Families with Dependent Children.
\14 Department of Housing and Urban Development.
\15 Job Opportunities and Basic Skills.
KEY EARLY CHILDHOOD PROGRAMS'
FEDERAL FISCAL YEAR 1992 BUDGETS
============================================================ Chapter 2
This section lists federal fiscal year (FFY) 1992 budget data, sorted
from smallest to largest, for key programs. Table 2.1 reflects
agency responses to our questionnaire.
Table 2.1
Early Childhood Programs' FFY 1992
Budgets
Early
Early childhood
childhood ratio to total
budget, FFY Total budget, budget
Program name 1992 FFY 1992 (percent)
-------------------------------- -------------- -------------- --------------
Chapter 1, ESEA Handicapped \a \a \a
Family Resource and Support \b \b \b
Even Start--Indian Tribes and \c $1,050,000 \c
Tribal Organizations
Child Abuse and Neglect State \\c 5,367,000 \c
Prevention Grants
Emergency Protection Grants-- \\c 19,518,000 \c
Substance Abuse
Child Abuse and Neglect State \c 20,000,000 \c
Grants
Education for Homeless Children \c 25,000,000 \c
and Youth
Even Start Family Literacy \c 70,000,000 \c
At-Risk Child Care \c 332,285,348 \c
AFDC Transitional Child Care \c 78,182,054 \c
AFDC/JOBS Child Care \c 359,796,765 \c
Title XX \c 2,800,000,000 \c
================================================================================
Subtotal for programs that \d $3,711,199,167 \d
cannot break out early
childhood budget
Native Hawaiian Special $10,000 450,000 2.22
Education
Migrant Education--Basic State 270,279 308,298,000 0
Formula Grant
Services for Children with Deaf- 600,000 13,000,000 4.62
Blindness
Appalachian Child Development 752,563 38,700,000 1.94
Native Hawaiian Family Based 800,000 2,800,000 28.57
Education Centers
Job Corps 856,298 919,533,000 0.09
Abandoned Infants 1,333,333 12,557,000 10.62
Even Start--Migrant Education 2,000,000 2,673,690 74.80
Chapter 2, State Block Grants 2,620,000 435,000,000 0.60
Family and Child Education 2,985,898 420,400,000 0.71
Comprehensive Residential Drug 3,500,000 10,300,000 33.98
Treatment Projects
Head Start--HUD 4,000,000 10,000,000 40.00
Follow Through 5,500,000 8,600,000 63.95
Bilingual Education 8,100,000 225,407,000 3.59
Temporary Child Care and Crisis 10,987,000 11,055,000 99.38
Nurseries
Comprehensive Child Development 20,000,000 46,800,000 42.74
Centers
Special Education--State Grants 159,342,000 1,854,185,895 8.59
(Part B)
Special Education--Infants and 175,000,000 175,000,000 100.00
Toddlers (Part H)
Child Care and Development Block 200,000,000 731,900,000\d 27.33
Grant
Special Education--Preschool 320,000,000 320,000,000 100.00
Grants (Section 619)
Chapter 1 537,972,848 6,134,240,000 8.77
Head Start 2,201,800,000 2,201,800,000 100.00
================================================================================
Total $3,658,430,219 $17,593,898,75 \d
2
--------------------------------------------------------------------------------
Note: Data are estimates provided by agency personnel in response to
a GAO survey.
\a Did not respond to GAO questionnaire.
\b Program did not exist in FFY 1992.
\c Data not provided either because data were not available for FFY
1992 or because program did not collect such data.
\d Not applicable.
\e FFY 1991 funds authorized to be spent over 2 years.
NUMBER OF CHILDREN SERVED, FEDERAL
FISCAL YEAR 1992
============================================================ Chapter 3
This section lists the number of children served by key federal
programs, sorted from smallest to largest number served, in federal
fiscal year 1992. Table 3.1 reflects agency responses to our
questionnaire.
Table 3.1
Number of Children Served in FFY 1992