Georgia’s Universal Pre-K Program: Lottery-Funded Pre-K for All 4-Year-Olds

In 1994, the state of Georgia became the first U.S. state to offer universal, tuition-free pre-kindergarten to all four-year-olds.

Prior to the 1990s, Georgia had low preschool enrollment, especially among low-income and rural families. Research from the time, including national studies like the Perry Preschool Project, provided strong evidence that children from lower-income families were starting school significantly behind their peers in key academic, social, and emotional skills. This achievement gap was a major concern for state leaders, as it often widened over a child's educational career, leading to a host of negative outcomes. For example, the absence of a robust early childhood education system was seen as a barrier to both immediate workforce participation and long-term economic prosperity. Policymakers recognized that a skilled future workforce depended on a strong educational foundation, which began long before kindergarten.

The creation of Georgia's universal pre-K program was a direct response to a pressing problem of educational and workforce inequity. State leaders recognized that the lack of affordable and accessible early childhood education was a significant barrier to both children's academic readiness and parents' ability to participate in the workforce. The solution began with a pilot program for at-risk students in 1992, which was expanded in 1995 to be universal for all four-year-olds. A crucial component of this solution was a public-private partnership, which made the program available in both public schools and private childcare centers. This model gave parents flexible choices and stabilized the private childcare industry by providing a consistent revenue stream. The program is free, full-day, and uniquely funded by the Georgia Lottery.

• Secure dedicated funding: A stable, non-general fund source (like Georgia’s lottery) insulated Pre-K funding from annual budget fights.
• Have a phased rollout plan: Start with a pilot for those most in need, then scale up. Georgia expanded from 8% of four-year-olds in 1993 to universal coverage by 1995.
• Maintain quality with support: Ensure strong quality standards (teacher qualifications, class size, curriculum) and back them with support – scholarships for teacher education. For example, Georgia used the HOPE Scholarship for early childhood education degrees. Quality drives outcomes; don’t sacrifice it for pure numbers. Georgia’s experience shows that investing in teacher quality yields sustained child gains.