March 4, 2004 

Serving Preschool Children 

Under Title I 

Non-Regulatory Guidance 

March 4, 2004 
 March 4, 2004 

i

Introduction 

“The years between birth and age five are the foundation 

upon which successful lives are built.” 

-Laura Bush 

President George W. Bush and First Lady Laura Bush believe that all children must 

begin school with an equal chance to achieve so that no child is left behind. Recognizing 

the importance of preparing children to enter school with the language, cognitive, and 

early reading skills that will help them meet challenging State academic achievement 

standards in elementary school and beyond, President Bush unveiled his early childhood 

education initiative: Good Start, Grow Smart. This initiative is intended to help States 

and local communities strengthen early learning for young children. Title I, Part A 

(hereinafter referred to as only Title I)- supported preschool education is an important 

part of this initiative. 

Since the enactment of the Elementary and Secondary Education Act (ESEA) in 1965, 

preschool services to eligible children have been an allowable use of Title I funds. 

Performance reports from State educational agencies (SEAs) for school year 2001-02 

indicate that approximately two percent of children benefiting from Title I services are in 

preschool. This percentage may seem small, but it represents more than 300,000 

children, and we anticipate that the number will grow as schools and local educational 

agencies (LEAs) recognize the importance of a high-quality early childhood education. 

Providing high-quality early childhood experiences can help ensure that children in Title 

I schools and programs have the foundation to meet academic standards and experience 

success throughout elementary and secondary school. Several studies demonstrate the 

powerful effects of high-quality early childhood programs on childrenís later academic 

success. A longitudinal study of over 800 children (Cost, Quality, and Outcomes, 1999) 

found that children in high-quality early childhood programs displayed better language 

and mathematics skills, acquired more cognitive and social skills, and engaged in better 

relationships with classmates than did children who attended low-quality preschool 

programs. An evaluation of the Chicago Child-Parent Centers found that children who 

participated in their Title I preschool programs were less likely to repeat a grade and be 

referred for special education compared to children in the control group who were from 

similar socioeconomic backgrounds (Reynolds, 2000). 

Educators, especially those in schools that predominantly serve students with economic 

need or with limited English proficiency, often find that a significant percentage of scarce 

resources are spent helping students with skill deficiencies in reading relative to their 

grade level. If a Title I preschool is of high-quality, it may prevent the need for 

remediation by addressing childrenís educational needs early. Ensuring that 

kindergartners arrive at school with the language, cognitive and early reading foundation 

needed to begin formal reading instruction has a positive impact on future performance, 

thereby reducing the need for remediation later. 
 March 4, 2004 

ii

Purpose of the Guidance 

This guidance provides the rationale for using Title I dollars for preschool services, 

identifies the components of a quality preschool program, and addresses many of the 

administrative issues that often arise when implementing a Title I preschool program. In 

addition, the reader will find examples that illustrate what instruction and learning look 

like in a high-quality Title I preschool program that ensures that children enter 

kindergarten with the necessary skills for later school success. Although support 

services, including the provision of nutritious meals are very important, especially in 

programs serving disadvantaged children, this issue is not discussed in this guidance. 

Guidance in this document is not intended for use by programs serving kindergarten-age 

children. This guidance is primarily geared toward programs serving children between 

three to five years of age, although serving younger children is an allowable use of funds. 

Guidance in this document replaces all previous non-regulatory Title I guidance on 

serving preschool children. The guidance reflects changes in program implementation as 

a result of amendments made by the No Child Left Behind (NCLB) Act, and also 

addresses questions raised by SEAs, LEAs, and other officials regarding this law that so 

profoundly affects American public education. Recipients of Title I funds may refer to 

this guidance when administering or operating projects supported by Title I funds. 

This Serving Preschool Children Under Title I, Part A Guidance is written to assist SEAs, 

LEAs and schools in understanding and implementing preschool programs supported 

with Title I funding. While SEAs may consider this guidance in the development of their 

own guidelines and standards, they are free to identify alternative approaches that are 

consistent with applicable Federal statutes and regulations. 
 March 4, 2004 

iii

Table of Contents 

A. General Information............................................................................................. 1

A-1. What does ìpreschool programî mean for the purposes of Title I? ....................... 1 

A-2. Who is considered a preschool-age child?.............................................................. 1 

A-3. What is the purpose of a Title I preschool program?.............................................. 1 

A-4. What are the benefits of a high-quality preschool experience? .............................. 2 

B. Components of High-Quality Preschool Programs ........................................... 2

B-1. What are the characteristics of a high-quality preschool program?........................ 2 

B-2. What types of activities occur throughout the day in a high-quality preschool?.... 4 

B-3. Donít young children naturally develop the skills they need for school success?.. 4 

B-4. What does the instruction look like throughout the dayís activities in a highquality preschool? ................................................................................................... 4 

B-5. Does ED encourage the formal teaching of reading in Title I preschools? ............ 9 

B-6. What general strategies do high-quality preschools use in selecting, developing, or 

supplementing a curriculum?................................................................................ 10 

B-7. What does the classroom environment look like in a high-quality preschool? .... 10 

B-8. How can preschool teachers effectively monitor childrenís progress to ensure that 

children enter school ready for success?............................................................... 11 

B-9. What type of professional development enables teachers to provide a high-quality 

early childhood education program?..................................................................... 11 

B-10. How do high-quality preschool programs engage parents?.................................. 12 

B-11. How can preschools effectively transition children from preschool to 

kindergarten?......................................................................................................... 13 

B-12. How can gains made in preschool be sustained in subsequent years?.................. 14 

C. State Administration........................................................................................... 14

C-1. What type of oversight responsibility do SEAs have for Title I preschools?....... 14 

C-2. How can SEAs support Title I preschools? .......................................................... 14 

C-3. What type of technical assistance can SEAs provide to LEAs in order to ensure 

high-quality Title I preschools? ............................................................................ 15 

C-4. What achievement standards apply to preschool programs receiving Title I funds?

............................................................................................................................... 15 

C-5. What requirements must a Title I preschool program meet if it uses an Even Start 

model?................................................................................................................... 16 

D. LEA and School-Level Administration of Preschools ..................................... 16

D-1. How may preschool programs be funded under Title I?....................................... 16 

D-2. How may district-operated Title I preschool programs be funded? ..................... 16 

D-3. Where may Title I preschool services be provided?............................................. 17 

D-4. If appropriate facilities are not available to house a preschool program in the 

district or a school, how might preschool services be provided? ......................... 17 
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D-5. What children are eligible for participation in a Title I-supported preschool 

program in a school operating a schoolwide program? ........................................ 17 

D-6. What children are eligible for participation in a Title I-supported preschool 

program in a Title I targeted assistance school? ................................................... 17 

D-7. May an LEA or school use Title I funds to identify eligible preschool children? 18 

D-8. Must a schoolwide program include plans to assist preschool children in the 

transition from preschool to local elementary school? ......................................... 18 

D-9. What responsibility do targeted assistance programs have with respect to assisting 

preschool children in the transition from preschool to local elementary school?. 18 

D-10. May an LEA or school use Title I School Improvement funds for a preschool 

program? ............................................................................................................... 18 

D-11. Are LEAs or schools required by Title I to test preschool children?.................... 19 

E. Qualifications of Teachers and Paraprofessionals in Title I Preschool 

Programs.......................................................................................................................... 19

E-1. What are the required qualifications for teachers working in Title I preschools? 19 

E-2. What are the required qualifications for paraprofessionals working in Title I 

preschool programs? ............................................................................................. 20 

E-3. Who qualifies as a paraprofessional in a Title I preschool program?................... 20 

E-4. Do the requirements apply to paraprofessionals working in preschool programs 

jointly funded by Head Start and Title I?.............................................................. 21 

E-5. What are the requirements for the supervision of paraprofessionals working in a 

Title I preschool program?.................................................................................... 21 

E-6. May Title I funds be used to provide professional development for preschool 

teachers and paraprofessionals not paid with Title I funds?................................. 21 

F. Parental Involvement.......................................................................................... 22

F-1. Why is parental involvement important in preschool programs? ......................... 22 

F-2. Do the parental involvement provisions in section 1118 of Title I apply to 

preschool programs? ............................................................................................. 22 

F-3. Do the LEA and schoolís written parental involvement policies apply to parents 

of children in Title I preschool programs?............................................................ 23 

F-4. What is the relationship between Title I parental involvement policies and those in 

other programs? .................................................................................................... 23 

F-5. How can Title I preschools build capacity for significant parental involvement? 23 

F-6. May schools include parents of children in Title I preschool programs in 

professional development activities? .................................................................... 24 

G. Coordination with Other Federal Programs.................................................... 24

G-1. How must Title I preschool programs coordinate with other preschool programs 

providing educational services?............................................................................ 24 

G-2. How may a school or LEA coordinate the use of Title I funds with Even Start 

Title I, Part B funds?............................................................................................. 24 

G-3. How may a school or LEA use Title I funds to complement or extend Head Start 

programs?.............................................................................................................. 25 
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G-4. Are children with disabilities eligible to participate in Title I preschool programs?

............................................................................................................................... 25 

G-5. Are migrant children eligible to participate in Title I preschool programs?......... 26 

G-6. Are Title I preschool programs required to coordinate with Migrant Education 

Program (MEP) services? ..................................................................................... 26 

G-7. What is the relationship between Early Reading First and Title I preschool?...... 26 

H. Fiscal and Legal Requirements.......................................................................... 26

H-1. May Title I funds be used to pay the cost of renting or leasing privately owned 

facilities for preschool instructional purposes or for office space? ...................... 26 

H-2. May Title I funds be used for minor remodeling to accommodate a preschool 

program? ............................................................................................................... 27 

H-3. May a portion of Title I funds be used to provide preschool participants with 

comprehensive services?....................................................................................... 27 

H-4. Must Title I preschools meet the supplement-not-supplant requirement?............ 27 

H-5. Are children in private preschools eligible for equitable Title I services? .......... 27 

H-6. What portions of the Education Department General Administrative Regulations 

(EDGAR) apply to Title I preschools? ................................................................. 27 

Appendix A: Resources on High-Quality Early Childhood Education .................... 28
A. General Information 

 

A-1. What does “preschool program” mean for the purposes of Title I? 

For the purpose of Title I, a preschool program is a program of educational 

services for eligible children below the age at which the LEA provides 

elementary education and is focused on raising the academic achievement 

of children once they reach school age. [Section 1115(b)(1)(A)(ii), ESEA.] [See 

D-5 through D-7 for further information on eligible children.] In some 

States, elementary education begins at first grade; in others it begins at 

kindergarten or before. 

A-2. Who is considered a preschool-age child? 

A preschool-age child is one who is below the grade level and age at 

which the LEA provides elementary education. [34 CFR Section 77.1(c).] For 

the purposes of Title I, children from birth to the age that the LEA 

provides a free public elementary education may receive preschool 

services. [Section 1115(b)(1)(A)(ii), ESEA.]

A-3. What is the purpose of a Title I preschool program? 

Title I preschool programs provide young children with the early learning 

experiences that will enable them to meet academic standards throughout 

elementary and secondary school. Research has consistently shown that 

children in poverty lag behind their more affluent counterparts in 

academic achievement. The 1998 report, School Poverty and Academic 

Performance: NAEP Achievement in High-Poverty Schools -- A Special 

Evaluation Report for the National Assessment of Title I, reported that the 

average math score for a nine year old enrolled in a high-poverty school 

was more than two grade levels behind those of an average nine year old 

enrolled in low-poverty schools. More critically, reading scores showed 

an astounding three-to-four year gap in achievement between the same 

groups. Gaps in academic achievement between poor and disadvantaged 

elementary school children and their more well-to-do counterparts can 

often be traced back to their earliest encounters with formal instruction. 

Many simply start out so far behind that they never catch up with the 

expectations of the school (Entwisle, Alexander, & Olson, 2000). One of 

the purposes of Title I is to narrow and eventually eliminate this gap. 

Preschool can play a major role in this effort. Research has found that 

intensive, high-quality preschool programs can close much of the early 

achievement gap for lower-income children (Barnett, 1998). Title I 

recognizes the value of early intervention through proven approaches. 

Section 1112(c)(1)(F) of the ESEA requires LEAs, when developing their 
 March 4, 2004 

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plans, to provide an assurance that they will take into account the 

experience of model programs for the educationally disadvantaged, and 

the findings of relevant scientifically-based research indicating that 

services may be most effective if focused on students in the earliest grades 

at Title I schools. Supporting childrenís growth, development, and 

learning in the early years, particularly for children who face significant 

challenges to successful learning, is an important strategy for preventing 

school failure and preparing children to demonstrate reading proficiency 

by the end of third grade. 

A-4. What are the benefits of a high-quality preschool experience? 

All children can benefit from high-quality early education programs, but 

the benefits are especially strong for children from low-income families. 

Research over the last 20 years has provided convincing evidence that 

children who have attended high-quality pre-kindergarten programs 

(Reynolds, 2000) ó 

• perform better in reading and math throughout the elementary grades; 

• are less likely to be held back a grade; 

• are less likely to require special education; 

• are less likely to present discipline problems; and 

• are more likely to be enthusiastic about school and have good school 

attendance. 

B. Components of High-Quality Preschool Programs 

B-1. What are the characteristics of a high-quality preschool program? 

High-quality early learning programs may look different depending on the 

communities and families they serve. While there is no precise ìcookiecutterî model, and parents should have a role in deciding what their child's 

early education program looks like, there are some things that all highquality programs will include if they are to prepare young children for 

later academic success. 

In school, just like at home, young children need safe, nurturing, and 

stimulating environments as well as the supervision and guidance of 

caring, competent adults. In a high-quality early education program, 

teachers maintain a safe, healthy environment and carefully supervise the 

children. Teachers plan a balanced schedule in which the children don't 

feel rushed or fatigued. They also provide nutritious meals and snacks. 

Yet, while these things are necessary, high-quality preschool programs 

that will give children the prerequisite skills for school success need to 

provide more. 
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In the pre-kindergarten years, research describes three key components of 

a high quality program for reading and academic success. These include a 

strong foundation in: (1) language development; (2) early literacy 

(phonological awareness, letter knowledge, written expression, book and 

print awareness, motivation to read); and early math (number and 

operations) (Lyon, 2003). There are several other characteristics 

consistent among high-quality educational programs that have 

demonstrated significant positive outcomes on measures of childrenís 

academic and social-emotional development. These areó 

• The program contains a clear statement of goals and philosophy

that is comprehensive and addresses all areas of child 

development, including how the program will develop childrenís 

cognitive, language, and early reading skills, the cornerstones of 

later school success. 

• Children are engaged in purposeful learning activities and play, 

and are taught by teachers who work from lesson and activity 

plans. 

• Instruction is guided by a coherent curriculum that includes 

meaningful content (such as science) and has a strong and 

systematic focus on cognitive skills, including the language, early 

reading, writing skills and math skills children need to develop 

before they enter kindergarten. 

• Instruction is always intentional, and frequently is direct and 

explicit. There is a balance between individual, small-group, and 

large-group activities. 

• The classroom environment is one where children feel well cared 

for and safe. It also stimulates childrenís cognitive growth and 

provides multiple and varied opportunities for language and 

literacy experiences. 

• Teachers frequently check childrenís progress. Ongoing 

assessment allows teachers to tailor their instruction to the needs of 

individual children as well as identify children who may need 

special help. 

• The preschool staff regularly communicate with parents and 

caregivers so that caregivers are active participants in their 

childrenís education. [See Section F] 

• Services are sufficiently intensive to allow more time for children 

to benefit from cognitive experiences. Preschools that operate for 

a full day, on a year-round basis, or have provided children with 

two years of preschool, show better results than those that offer 

less intense services (Reynolds, 2000). 
 March 4, 2004 

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B-2. What types of activities occur throughout the day in a high-quality 

preschool? 

The schedule of a high-quality preschool classroom is often broken into 

blocks of time for different types of learning and instruction. Good 

teachers know when to teach directly, when to provide time for 

exploration and discovery, when to provide opportunities for children to 

practice skills, and when to encourage creativity. However, teachers 

should use the entire time during the preschool day in meaningful ways, 

regardless of whether the teacher is engaging in direct instruction. For 

example, teachers may point out new words or concepts during the daily 

book read-aloud, or provide opportunities for children to develop their 

language skills while transitioning to snack or outdoor time. 

B-3. Don’t young children naturally develop the skills they need for school 

success? 

Children are able to learn a great deal by simply exploring their 

environment independently and by interacting with people, given that 

some knowledge is naturally discoverable. Some knowledge, as well as 

many skills, however, are not naturally discoverable through independent 

exploration or through typical interactions with others, and these skills 

must be explicitly taught. Scientifically-based reading research has 

identified specific skills that young children need to acquire a foundation 

for reading success. (Adams, 1997; Bryant, 1990; Dickinson & Smith, 

1994; Dickinson & Tabors, 2001; Karweit & Wasik, 1996; Snow, et al., 

1998; Sulzby, 1985) 

B-4. What does the instruction look like throughout the day’s activities in a 

high-quality preschool? 

It is vital that early education programs pay strong and consistent attention 

to all of the developmental domains of early childhood. Those domains 

(social, emotional, cognitive, linguistic, and physical) are closely related, 

and growth in language and cognition will optimally occur in the context 

of the other areas of development. For example, language development 

emerges from social interactions and rich experiences; good health and 

nutrition are foundational for all types of learning, and self-assurance in a 

group setting helps children profit from school experiences. 

Early care and early education programs go a long way to address the 

social, emotional and health needs of children and families. However, 

new research points to the importance of the language and cognitive 

domains as well. That research (Dickinson & Tabors, 2001; Snow, et al., 

1998) illustrates the importance of developing the intellectual 

competencies of young children and suggests specific ways to support 

learning through the use of strategies such as explicit and ìscaffoldedî 
 March 4, 2004 

5

instruction (instruction in which adults build upon what children already 

know to help them accomplish a complex task by breaking it down into 

simpler components). An extensive body of evidence, much of which is 

summarized in the National Research Council report Preventing Reading 

Difficulties in Young Children (Snow, et. al, 1998), is also available that 

stresses the importance of early reading skills, including phonological 

awareness and vocabulary development. 

In high-quality preschool programs, you should see children doing the 

followingó 

• learning the letters of the alphabet; 

• learning to hear the individual sounds in words. Children need to 

rhyme, to break words apart into their separate sounds 

(segmenting), and put sounds together to make words (blending); 

• learning new words and how to use them; 

• learning early writing skills; 

• learning to use language by asking and answering questions, and 

by participating in discussions and engaging in conversations; 

• learning about written language by looking at books and by 

listening to stories and other books that are read to them every day; 

and 

• becoming familiar with math and science. 

As indicated in Teaching Our Youngest, an ED guide for preschool 

teachers and child-care and family providers [available free of charge by 

calling 1-877-EDPUBS, 1-800-USA LEARN or ordering on-line at: 

http://www.ed.gov/pubs/edpubs.html] some of the components of a highquality preschool areó 

! Teachers enabling children to develop listening and speaking skills

Children should be able to listen carefully and speak for a variety of 

purposes, such as following and giving simple instructions, asking 

questions, and expressing their ideas and feelings. Teachers in Title I 

preschools can help children develop these skills byó 

• asking open-ended questions that invite children to expand upon their 

answers; 

• using a diversity of words to expand childrenís vocabularies; 

• letting children take the conversational lead; and 

• responding to children with a positive and encouraging tone and 

guidance style. 

Examples of how teachers canÖ

Öengage children in conversation throughout the day: “Why did you 

color the house orange, Rana?î 

Ögently reinforce the rules of good listening and speaking: “Connor, 

please donít talk while Yi is asking a question ñ youíll get your turn.î 
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! Teachers reading aloud with children 

Reading aloud with young children is important because it helps them 

acquire the information and skills they need to succeed in school and life, 

such as: printed letters and words and the relationship between sound and 

print; the meanings of many words; an understanding of the world in 

which they live; and the development of enjoyment in reading. 

Teachers shouldó 

• read aloud with children several times a day, establishing regular times 

for reading and finding other opportunities; and 

• make reading books an enjoyable experience for children by choosing 

a comfortable place for reading and showing enthusiasm for reading. 

Reading aloud with children (ìbook sharingî) is different from traditional 

reading to children (ìbook readingî) that does not involve childrenís 

active participation. In book sharing teachersó 

• help children to learn through reading, by helping them notice new 

information, offering explanations, and explaining unfamiliar words; 

and 

• ask children meaningful questions while reading and encourage 

discussion about the book. 

Examples of how teachers canÖ

...ask children questions that help them make connections between the 

book and their own experiences: 

Adult: ìWhat does it feel like to play in the snow?î 

Child: ìItís cold.î 

...evaluate the childís response, and expand if necessary by adding new 

information.

Adult: ìYes, itís cold when your feet get wet or when someone hits you 

with a snowball.î 

.... wait until the end of the book and ask the child to recall some of the 

new information

Adult: ìCan you remember some of the things we talked about that 

make people cold when they play in the snow?î 
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! Teaching about the sounds of spoken language (phonological 

awareness) 

Learning to hear the individual sounds in words is essential for childrenís 

reading readiness. Children need to learn to break words apart into their 

separate sounds (segmenting) and put sounds together to make words 

(blending). Teachers can help children develop their phonological 

awareness byó 

• reading books aloud that focus on sounds, rhyming and alliteration; 

• playing games that isolate the beginning sounds in familiar words; and 

• recognizing the common sounds at the beginning of a series of words 

(alliteration). 

! T

! Teaching about print 

It is important for children to recognize print in their surroundings, 

understand that it carries meaning, know that it is used for many purposes, 

and to experience print through writing. Teachers shouldó 

• create print rich-environments that include books, photographs and 

pictures with captions and labels, calendar and bulletin board 

displays, and labels and signs for special areas of the classroom, 

and 

• make a variety of props that use printed letters and words available 

for use in dramatic play, such as menus, play money, recipes, 

empty food cartons, and telephone books. 

Examples of how teachers canÖ

Öinvite children to identify and manipulate the beginning sounds of words:

ìLetís say ëHumpty Dumptyí again, but this time make it ëLumpty 

Gumptyí.î 

Öplay word games that help children identify and generate rhyming words:

ìWhich of these words rhyme: snow, lamb, and go?îÖ or ìHow many 

words can you think of that rhyme with clock?î 

Examples of how teachers canÖ

Ödraw childrenís attention to print everyday life: ìIím going grocery shopping 

later, so I wrote this list of the things I need to buy. Can you tell me how many 

things are on the list?î 

Ödistinguish between childrenís beginning writing and drawing: ìI like the cat 

you drew. She is a pretty orange cat. Oh, I see over here you wrote your catís 

name. Can you tell me your catís name?î 
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! Teaching about books

It is important for young children to know how to handle books 

appropriately, recognize booksí features such as the cover and title, and 

recognize it was written by an author and has drawings by an illustrator. 

Children should also recognize that printed letters and words run from left 

to right across the page and from top to bottom. 

! Teaching about letters

In order for children to enter kindergarten ready to learn to read, it is 

essential that they leave preschool with the ability to: recognize and name 

letters; recognize beginning letters in familiar words (e.g., their own 

name); recognize both capital and lowercase letters; and relate some letters 

to the specific sounds they represent. Teachers shouldó 

• create a classroom environment that provides a variety of 

opportunities to learn about letters through manipulatives, 

environmental print including an alphabet posted at eye-level, 

alphabet books, and at a writing center; and 

• play games that use letters, provide children with letter 

manipulatives, and encourage children to write letters using 

various materials. 

! Building children’s background knowledge and thinking skills 

It is important for young children to learn information about the world 

around them, to discover what things are and how they work. Through 

learning about the world, they extend their use of language, develop 

Examples of how teachers canÖ

Ödraw childrenís attention to how print functions in books: Teachers can 

emphasize the direction in which we read by pointing to the first word on a line and 

running a finger beneath the words while reading from left to right and top to 

bottom. 

Examples of how teachers canÖ

Öhelp children write letters: ìLook, I made the letter ìCî out of play 

dough. Now can you make a letter ìCî? Good! What other letter should 

we make together?î 

Öhelp children hear the sounds that letters can make: ìLinn, your name 

begins with an ìLî (emphasizing the beginning sound). Who else has a 

name that begins with the same sound? Yes, Larry! Your name also begins 

with an ìLî sound, made by the letter ìLî (saying the letter name).î 
 March 4, 2004 

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vocabulary, and develop their abilities to figure things out and to solve 

problems. Teachers shouldó 

• provide children with opportunities to develop concepts by 

exploring and working with a variety of equipment and 

materials; and 

• share informational books, especially those that use pictures 

and illustrations that children can understand easily. 

! Teaching about numbers and counting 

Teachers can help children learn about numbers and counting in numerous 

ways, such as through pointing to and counting objects as part of the 

classroomís daily routine and when passing out materials. 

Teaching in more direct ways can involveó 

• providing children opportunities to count using manipulatives; 

• teaching counting songs and rhymes that use different actions; 

• reading and discussing number-counting books; and 

• including numbers in the pictures they draw and in the words and 

stories they write. 

B-5. Does ED encourage the formal teaching of reading in Title I 

preschools? 

ED encourages Title I preschools to teach early reading and cognitive 

skills that provide the foundation for formal reading instruction. Early 

childhood education programs, including Title I preschools, should not be 

implementing an elementary school curriculum, either; they should be 

providing opportunities for children to develop early reading skills 

through activities that are appropriate and enjoyable for young children. 

Along that vein, early childhood education programs, including Title I 

preschools, do not de-emphasize playórather, they encourage teachers to 

Examples of how teachers canÖ

Öteach children new words and concepts: ìLook at the seeds we planted. 

Theyíre sprouting! See how the seedling is pushing through the dirt? See 

the tiny green leaves? That means it is growing!î 

Examples of how teachers canÖ

Öuse manipulatives to teach numbers, counting and math concepts: Teachers 

can provide children with different types of macaroni and encourage the 

children to sort the different types and then count them aloud. With older 

children, teachers can teach the concepts of ìsame, different, more than, less 

than, and one more” while comparing the groups of objects. 
 March 4, 2004 

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use constructive and imaginative play as intentional opportunities for 

children to develop their vocabulary, understanding, and ability to think 

about the world around them. 

B-6. What general strategies do high-quality preschools use in selecting, 

developing, or supplementing a curriculum? 

Teachers should identify and provide activities and instructional materials, 

based on scientifically-based reading research, that develop childrenís 

language, cognitive, and early reading skills. If the State in which the 

preschool is located has high-quality preschool guidelines in cognitive and 

language domains, we encourage the preschool to align the curriculum 

with those standards. If a State does not have preschool guidelines in the 

language and cognitive domains, we recommend that the curriculum be 

aligned with the State K-12 standards so that children develop the 

prerequisite skills so they will succeed in reading when they start formal 

schooling. 

The curriculum should be intellectually engaging, have meaningful 

content, and provide multiple opportunities for developing and practicing 

language and cognitive skills, including the use of explicit instruction. 

B-7. What does the classroom environment look like in a high-quality 

preschool? 

Preschool teachers should plan the classroom environment carefully so 

that literacy is an integral part of everything they do. In this way literacy 

learning, that is reading and writing, becomes a meaningful part of their 

everyday lives. For example, research shows (Neuman and Dickinson, 

2001) that childrenís literacy development is supported in classrooms 

tható 

• have a large number of high-quality, age-appropriate books in a 

variety of genres (e.g., story books, alphabet books, nonfiction 

books, and wordless picture books) that can be easily accessed by 

the children); 

• are print-rich, with letters of the alphabet, labels, and printed 

directions clearly displayed at the children's eye level; 

• have play and learning centers that include a large number and 

wide variety of books, writing tools, and other materials and props 

conducive to dramatic play; 

• have a book-reading area with comfortable furniture, a carpet, or 

pillows; and 

• display childrenís work throughout the room. 
 March 4, 2004 

11

Many of the displays throughout the room, whether books, labels or other 

printed materials, will change throughout the year as children study 

different topics and the environment reflects their learning. 

B-8. How can preschool teachers effectively monitor children’s progress to 

ensure that children enter school ready for success? 

Throughout the year, teachers should regularly monitor childrenís 

academic, social, and emotional development in a variety of ways. 

Through progress monitoring, teachers are better able to plan instruction 

and ensure that childrenís needs are being met. There should be formal 

and informal observations of childrenís progress in academic and social 

activities. Teachers can monitor childrenís progress byó 

• observing children as they play with each other, respond to 

directions, participate in activities, and use language to 

communicate; 

• collecting samples of childrenís drawings and writings; 

• documenting progress; 

• talking with children about their own progress; and 

• talking with parents about what they have observed at home. 

Teachers should think about how their instruction can be better tailored to 

the individual childís needs if the student is not progressing in a particular 

area. Through the use of screening and diagnostic tools, teachers can 

become aware if the child should be referred for any special services. It is 

important that teachers communicate with parents about the childís 

strengths and share any concerns about the childís development. 

B-9. What type of professional development enables teachers to provide a 

high-quality early childhood education program? 

Teacher knowledge is a crucial ingredient in a high-quality early education 

program. Children's cognitive growth and language development are 

primarily influenced by the daily interactions between children and the 

adults who are teaching them, caring for them, and guiding their learning 

opportunities. The curriculum, learning environment, and materials 

available to children are important elements of quality, but it is the 

teacher's ability to implement the curriculum and to use effective 

instructional approaches that result in a long-term difference for learning 

(Whitebrook, 2003). [See Appendix A and 

http://www.iir.berkeley.edu/cscce for additional information.] 

Many preschool teachers do not have formal training in providing explicit 

instruction or supporting and expanding children's cognitive and language 

skills. Some school-based early education programs hire elementary 

school teachers and, although these teachers traditionally have at least a 
 March 4, 2004 

12

bachelor's degree in education, they need additional training in child 

development, language acquisition, early literacy, observation, and 

assessment. 

Professional development for preschool staff should be based on 

knowledge from scientifically-based research of how children develop 

their cognitive language, literacy, and other essential skills for school 

readiness. For exampleó 

• strategies for reading to children,

• extending discourse; and

• teaching new words.

 In addition, preschool educators can benefit from sustained professional 

development that uses such strategies as mentoring and coaching. For 

example, a coach might model effective teaching strategies for the teacher, 

and/or observe the teacherís instruction, which is followed by discussion 

and reflection on the effectiveness of instructional strategies and how they 

support young childrenís progress. 

The statutory definition of ìprofessional developmentî in section 9101(34) 

of the ESEA, which applies to Title I preschools, lists a number of 

activities. Those most applicable to the preschool level are listed below. 

Professional development includes activities tható 

• are high-quality, sustained, intensive, and classroom-focused in order 

to have a positive and lasting impact on classroom instruction and the 

teacherís performance in the classroom; 

• are not one-day or short-term workshops or conferences; 

• are designed to advance teachersí understanding of effective 

instructional strategies that are based on scientific research; 

• are aligned with and directly related to any applicable State content 

standards; 

• provide instruction in methods of teaching children with special needs; 

and 

• are regularly evaluated for effectiveness. 

B-10. How do high-quality preschool programs engage parents? 

The quality of family environments and parent-child interactions is central 

to a child's literacy and cognitive development. Parents strengthen their 

child's literacy development and school-related competencies when they 

engage in language-rich, parent-child interaction, provide supports for 

literacy in the family, such as by reading to their children, and hold 

appropriate expectations of the child's learning and development. Highquality preschool programs provide explicit training for parents in the 

skills and behaviors that support their child's development. For example, 

parents and other family members should be encouraged toó 
 March 4, 2004 

13

• talk with children and engage them in conversations, and help 

them to name objects in their environment (ìlabelingî); 

• read and re-read stories; 

• encourage children to recount experiences and describe ideas that 

are important to them; 

• visit the library and museums; and 

• provide opportunities for children to draw and print, using a 

variety of implements, such as markers, crayons, and pencils. 

Teachers and parents are partners in preparing children for future school 

success. It is essential that teachers engage in consistent and meaningful 

sharing of information with parents and caregivers, including meeting with 

parents to talk about any areas in which their child is experiencing 

difficulties. In addition, by sharing specific information about the topics 

children are learning, and the skills they are developing, teachers 

strengthen parentsí ability to support their childrenís learning at home. 

Some examples of ways in which teachers can communicate with parents 

areó 

• talking to parents as they deliver and pick up their children; 

• sending home newsletters or notes that share what children are 

learning at school; 

• arranging regular meetings to discuss the childís progress; and 

• identifying strengths and any areas in which the child could use 

extra support at home. 

Teachers should communicate with parents in other languages when 

appropriate to facilitate effective communications, (see for example, 

34CFR200.6(c)(2) of Title I regulations). Teachers also should work with 

parents to develop a plan for summer or other vacation periods between 

preschool and kindergarten that allows the child to continue in an 

instructional program and prevents the loss of previously acquired skills. 

Teachers can encourage parents to become their child's advocate and 

spend time in the preschool observing and helping their own child. 

B-11. How can preschools effectively transition children from preschool to 

kindergarten? 

Some of the ways in which preschool programs can help ensure continuity 

in childrenís learning areó 

• coordinating the professional development activities of preschool and 

kindergarten teachers in order to align prekindergarten and 

kindergarten curricula and goals; 

• arranging for kindergarten and preschool teachers to visit each otherís 

classrooms; and 
 March 4, 2004 

14

• having preschool teachers provide the future kindergarten teacher with 

childrenís portfolios or a written record of their learning during 

preschool. 

Sharing information about a childís experience in preschool is particularly 

important in cases where a child may need extra support in order to 

experience success in school. For example, for children who are having 

particular difficulty with spoken language or cognitive skills upon entry to 

kindergarten, the preschool teacher should provide the kindergarten 

teacher with the childís history, which would likely include documentation 

of steps taken to help the child progress toward his or her program goals, 

and a discussion of areas where the child is still experiencing difficulty. 

B-12. How can gains made in preschool be sustained in subsequent years? 

Participating in even one year of early education of sufficient high quality 

can make an important contribution to children's later reading and school 

success. However, programs achieve the most enduring and meaningful 

results when children continue to receive comparable educational services 

at least through the primary grades. These follow-on activities include 

parent involvement and activities that are designed to promote continuity 

in children's educational experiences (Reynolds, 2000). 

C. State Administration 

C-1. What type of oversight responsibility do SEAs have for Title I 

preschools? 

As the Title I grantee, the SEA is responsible for oversight of all Title I 

programs, including preschool programs operated with Title I funds. 

[Sections 1111 and 1112, ESEA.] 

C-2. How can SEAs support Title I preschools? 

Some SEAs are presently supporting Title I preschools through their early 

childhood endeavors byó 

• disseminating information, through publications, conferences, and 

other events, that describes how Title I funds can best be used to 

support preschool programs; 

• coordinating Title I efforts with offices for early childhood education 

(where they exist); 

• developing State preschool standards in the cognitive and language 

domains; 
 March 4, 2004 

15

• monitoring programs to ensure that Title I preschool is meeting 

program goals; 

• considering early intervention as an appropriate measure to prevent 

later academic difficulties when providing technical assistance to 

schools that are in school improvement; and 

• providing funds for professional development and improving the 

cognitive focus in preschools through special initiatives. 

C-3. What type of technical assistance can SEAs provide to LEAs in order 

to ensure high-quality Title I preschools? 

In addition to supporting Title I preschools through broad-based efforts, 

such as those mentioned in C-2, SEAs can provide targeted support to 

LEAs through technical assistance that is specifically focused upon 

improving local program quality. 

SEAs can ñ 

• provide professional development for early childhood educators, by 

holding on-going workshops and training for practitioners to learn how 

to apply research-based practices in their classrooms, and providing 

support for follow-up coaching and mentoring opportunities; 

• provide information about the State content standards for K-3; 

• disseminate information through a list-serv, conferences, or other 

events in order to share research-based practices to use in preschools 

and highlight particularly effective preschools in their State; and 

• encourage the use of mentoring relationships between effective 

preschools and those that are struggling. 

C-4. What achievement standards apply to preschool programs receiving 

Title I funds? 

The Department encourages SEAs to develop developmentally appropriate 

preschool content standards that are aligned with the SEAís K-3 content 

standards and that specify what children are expected to know and be able 

to do when they arrive at kindergarten, and also to develop preschool 

achievement standards that measure those aligned preschool content 

standards. If a preschool is located in a State that does not have preschool 

content standards, or if the State preschool standards do not address the 

cognitive and language domains, local preschools are encouraged to 

develop standards that will ensure that children acquire the skills they 

need to be successful in school. 

An LEA that uses Title I funds to provide early childhood development 

services to low-income children below the age of compulsory school 

attendance must ensure that those services comply at a minimum with the 

achievement standards established under section 641A(a) of the Head 

Start Act. [Section 1112(c)(1)(G), ESEA.] The specific Head Start standards 
 March 4, 2004 

16

applicable to Title I preschool programs are in regulations at 45 CFR 

1304.21─Education and Early Childhood at: 

http://www.headstartinfo.org/pdf/1304.pdf. 

If an SEA has preschool achievement standards that are different from and 

enhance the Head Start achievement standards, LEAs should use those 

SEA achievement standards in addition to the Head Start standards. Title 

I preschool programs using the Even Start Family Literacy Program 

model, or Even Start programs that are expanded through the use of Title I 

funds, are not required to comply with the Head Start achievement 

standards. [Section 1112(c)(3), ESEA.] However, Even Start programs are 

governed by indicators of program quality (performance standards) 

developed in each State for that program. 

 

 C-5. What requirements must a Title I preschool program meet if it uses 

an Even Start model? 

A Title I preschool program using an Even Start model must integrate 

early childhood education, adult literacy or adult basic education, and 

parenting education into a unified family literacy program. [Section 1231, 

ESEA.] Additionally, the Title I preschool programs using an Even Start 

model must include program elements (1) through (15) in section 1235 of 

Title I, Part B (Even Start Family Literacy Program). The legislation for 

the Even Start Family Literacy Program is at: 

http://www.ed.gov/programs/evenstartformula/legislation.html?exp=0. 

D. LEA and School-Level Administration of Preschools 

D-1. How may preschool programs be funded under Title I? 

 There are several ways in which preschool programs may be funded 

under Title I. For exampleó 

• A participating school may use its Title I funds to operate a preschool 

program. 

• An LEA may reserve an amount from the LEAís total allocation to 

operate a Title I preschool program for eligible children in the district 

as a whole or for a portion of the district. [Section 1112(b)(1)(K), ESEA.]

D-2. How may district-operated Title I preschool programs be funded? 

An LEA may reserve an amount from the LEAís total allocation and 

distribute those funds to specific Title I schools, or other comparable 

public early childhood education programs to operate Title I preschool 

programs. Head Start, Even Start, and Early Reading First are examples 

of such programs. [See G-2 and G-3] [Section 1112(b)(1)(K), ESEA.] 
 March 4, 2004 

17

D-3. Where may Title I preschool services be provided? 

Preschool services may be provided at any location that other Title I 

services may be provided, including public school buildings, public 

libraries, community centers, privately owned facilities (including 

facilities owned by faith-based organizations (FBOs)), the child's home 

and other appropriate settings. 

D-4. If appropriate facilities are not available to house a preschool 

program in the district or a school, how might preschool services be 

provided?

If appropriate district or school facilities are not available for preschool 

services, the district and school should consider working with children in 

existing childcare programs such as Head Start, Even Start, Early Reading 

First, or a program funded under the Child Care Development Block 

Grant, or a site conducting a family literacy program. In any case, the 

setting should be of sufficient quality to facilitate effective program 

implementation. 

D-5. What children are eligible for participation in a Title I-supported 

preschool program in a school operating a schoolwide program? 

A preschool that is part of a Title I school operating a schoolwide program 

is not required to identify particular children as eligible to participate in 

the Title I preschool. Rather, all children in the attendance area of that 

school are eligible for preschool services. [Section 1114(a)(2), ESEA.]

D-6. What children are eligible for participation in a Title I-supported 

preschool program in a Title I targeted assistance school? 

To be eligible to attend a Title I preschool program in a targeted assistance 

school, preschool-age children ─ like school-age children ─ must be 

failing or most at risk of failing to meet the Stateís challenging student 

academic achievement standards as determined by multiple, educationally 

related, objective criteria established by the LEA and supplemented by the 

school. With respect to preschool children, this determination must be 

made on the basis of criteria such as teacher judgment, interviews with 

parents, and developmentally appropriate measures of child development. 

[Section 1115(b), ESEA.] 

The use of family income to determine eligibility for Title I preschool is 

allowable, especially for the purposes of prioritizing when there are not 

sufficient Title I resources to serve all preschool age children with other 
 March 4, 2004 

18

educational needs, but children should not be identified for Title I 

preschool solely on the basis of family income. 

In addition, children who participated in a Head Start, Even Start, Early 

Reading First, or Title I preschool program at any time during the two 

preceding years, homeless children, and children in institutions for 

neglected or delinquent children are automatically eligible for Title I 

preschool and to continue into Title I school programs. [Section 1115(b)(2), 

ESEA.] 

D-7. May an LEA or school use Title I funds to identify eligible preschool 

children?

Generally, it is the responsibility of an LEA and school to use information 

it already has available to identify at-risk children. However, if an LEA 

has no existing assessment data for preschool children, Title I funds may 

be used for identifying these children. 

D-8. Must a schoolwide program include plans to assist preschool children 

in the transition from preschool to local elementary school? 

Yes. A schoolwide program must include plans for assisting preschool 

children in the transition from early childhood programs, such as Title I 

preschool, Head Start, Even Start, or Early Reading First, to local 

elementary school programs. [Section 1114(b)(1)(G), ESEA.] [Also see 

examples of transition activities in B-11.] 

D-9. What responsibility do targeted assistance programs have with 

respect to assisting preschool children in the transition from preschool 

to local elementary school? 

Targeted assistance programs must coordinate with and support the 

schoolís regular education program, which may include services to assist 

preschool children in the transition from early childhood programs such as 

Head Start, Even Start, Early Reading First, or State-run preschool 

programs to elementary school programs. [Section 1115(c)(1)(D), ESEA.] 

D-10. May an LEA or school use Title I School Improvement funds for a 

preschool program? 

Yes. If a local educational agency or school receives School Improvement 

funds, the district or school may use those School Improvement funds to 

conduct a preschool program if the preschool program is a strategy that 

addresses the specific academic issues that caused the district or school to 

be identified for school improvement, and the preschool program is 
 March 4, 2004 

19

carried out in accordance with the districtís or schoolís improvement plan. 

[Sections 1116(b)(3)(A), 1116(c)(7)(A), ESEA.] 

D-11. Are LEAs or schools required by Title I to test preschool children? 

No. Under Title I, third grade is the earliest grade at which children must 

be tested. [Section 1111(b)(3)(C)(v), ESEA.] However, the more that teachers 

know about childrenís academic, social, and emotional development, the 

more able they are to meet those childrenís needs. Therefore, the 

Secretary recommends that LEAs and schools develop age-appropriate 

screening and assessment measures to assist with individualizing 

instruction so that all Title I preschool students develop a strong 

foundation in literacy and numeracy. In addition, through initial screening 

and by checking the childrenís progress, teachers and schools can identify 

those children who need special help or who face extra challenges. 

Screenings and assessments for preschool children do not imply the use of 

paper- and-pencil, and large-group assessments, which are not allowed 

below the third grade in some States. Rather, appropriate assessments for 

preschool children include individually administered standardized 

assessments, observational checklists completed by teachers while 

students play, or an analysis of student work. The information gleaned 

from these types of assessments should then be used to make informed 

decisions about instruction and enhance teaching and learning, rather than 

to make judgments regarding the efficacy of a school or a system. 

When choosing a screening or assessment tool, LEAs and schools should 

ensure that it has been validated for its intended purpose and population. 

For example, it is not appropriate to use a first-grade skills assessment for 

screening or assessing a preschool-age child. 

E. Qualifications of Teachers and Paraprofessionals in Title I 

Preschool Programs 

E-1. What are the required qualifications for teachers working in Title I 

preschools? 

Well-trained teachers are important to the quality of early childhood 

education programs and the successful development and learning of young 

children. Preschool teachers working in Title I preschool programs, in 

States that consider preschool as part of public elementary education, must 

meet the applicable Title I teacher qualification requirements. [Sections 

200.55 and 200.56, Title I Final Regulations, December 2, 2002.] The Improving 

Teacher Quality Non-Regulatory Guidance is available at: 

http://www.ed.gov/programs/teacherqual/guidance.doc and the Title I Final 
 March 4, 2004 

20

Regulations are available at: 

http://www.ed.gov/legislation/FedRegister/finrule/2003-2/041803a.pdf. 

E-2. What are the required qualifications for paraprofessionals working in 

Title I preschool programs? 

In Title I preschool programs in targeted assistance schoolsó 

• all paraprofessionals paid with Title I funds must have earned a 

secondary school diploma or its recognized equivalent; and 

• any paraprofessional paid with Title I funds and hired after January 

8, 2002, must have (1) completed at least two years of study at an 

institution of higher education; (2) obtained an associateís or 

higher degree; or (3) met a rigorous standard of quality, and 

demonstrate ─ through a formal State or local academic 

assessment ─ knowledge of, and the ability to assist in instructing, 

reading readiness, writing readiness, and mathematics readiness. 

All paraprofessionals paid with Title I funds and hired by an LEA 

must meet these requirements by January 8, 2006. 

In Title I preschool programs in schoolwide program schools, all 

paraprofessionals must meet the above requirements, regardless of how 

their salary is funded. 

Paraprofessionals who only serve as translators or who conduct parental 

involvement activities must have a secondary school diploma or its 

equivalent, but do not have to meet these additional requirements. [Section 

200.58, Title I Final Regulations (December 2, 2002).] [For more information on 

paraprofessionals, see 

http://www.ed.gov/policy/elsec/guid/paraguidance.doc.] 

 

E-3. Who qualifies as a paraprofessional in a Title I preschool program? 

A paraprofessional, for the purpose of meeting staff qualification 

requirements in a Title I preschool, means an individual who provides 

instructional support under the direct supervision of a qualified teacher. 

Instructional support may include: assisting in classroom management, 

conducting parent involvement activities, providing instructional support 

in a library or media center, acting as a translator, or providing 

instructional support services such as helping children practice reading 

readiness, writing readiness, and mathematics readiness skills taught by 

the teacher. Paraprofessionals should not be providing direct instruction 

or introducing new content or skills. A paraprofessional does not include 

individuals who have only non-instructional duties, such as providing 

personal care services or performing clerical duties. [Sections 200.58 and 

200.59, Title I Final Regulations (December 2, 2002).]
 March 4, 2004 

21

E-4. Do the requirements apply to paraprofessionals working in preschool 

programs jointly funded by Head Start and Title I? 

The requirements apply to paraprofessionals working in a non-schoolwide 

Head Start program that is jointly funded with Title I funds if the 

paraprofessional is paid with Title I funds; for example, a program where 

Title I funds the instructional component and Head Start funds the 

remainder of the program activities. The requirements also apply when a 

jointly funded program is part of a Title I schoolwide program. [Section 

200.58(a)(3), Title I Final Regulations (December 2, 2002).] 

E-5. What are the requirements for the supervision of paraprofessionals 

working in a Title I preschool program? 

Paraprofessionals must provide instructional support under the direct 

supervision of a teacher. A paraprofessional works under the direct 

supervision of a teacher if the teacher plans the instructional support 

activities the paraprofessional carries out, evaluates the achievement of the 

students with whom the paraprofessional is working, and the 

paraprofessional works in close and frequent physical proximity with the 

teacher. [Section 200.59, Title I final regulations, (December 2, 2002).] 

As a result, a Title I preschool program staffed entirely by 

paraprofessionals is not permitted. A Title I preschool program where a 

paraprofessional provides instructional support and a teacher visits a site 

once or twice a week but otherwise is not in the classroom, or a program 

where a paraprofessional works with a group of students in another 

location while the teacher provides instruction to the rest of the class, 

would also be inconsistent with the requirement that paraprofessionals 

work in close and frequent proximity to a teacher. [For more information, 

see the Draft Paraprofessional Guidance 

http://www.ed.gov/policy/elsec/guid/paraguidance.doc. 

A paraprofessional may assume limited duties that are assigned to similar 

personnel who are not working in the Title I preschool program including 

noninstructional duties and duties that do not benefit participating 

students, if the amount of time the paraprofessional spends on those duties 

is the same proportion of total work time as the time spent by similar 

personnel at the same school. [Section 222.59(d), Title I Final Regulations.]

E-6. May Title I funds be used to provide professional development for 

preschool teachers and paraprofessionals not paid with Title I funds? 

Title I funds may be used to provide professional development for any 

teacher or paraprofessional working in a Title I preschool program 

supported partly by Title I funding even if their salary is not paid for with 

Title I funds if the training is related to the Title I program and is designed 

to meet the educational needs of Title I children. For example, Title I 
 March 4, 2004 

22

funds may be used for professional development for a Head Start teacher 

working in a preschool program jointly funded by Title I and Head Start if 

the training is related to the Title I program or is designed to help the Head 

Start teachers meet the educational needs of Title I children. 

Under certain conditions, Title I funds may also be used for joint 

professional development for non-Title I preschool teachers and 

paraprofessionals working in programs with no Title I funds, such as Head 

Start staff, and for Title I elementary school teachers and 

paraprofessionals. For example, Title I funds may be used for such joint 

professional development if the children served in the non-Title I 

preschool are likely to be attending a Title I school when they enter 

kindergarten, and if the purpose of the professional development is to 

improve coordination between the non-Title I preschool and the Title I 

school or to facilitate childrenís transition from preschool into the Title I 

elementary school. 

F. Parental Involvement 

F-1. Why is parental involvement important in preschool programs? 

Parental involvement in the education of children should begin as soon as 

they start school. Early childhood, preschool, and kindergarten programs 

that train parents to work with their children at home tend to have 

significant, positive effects. Children who participate in these programs 

have better grades and ratings from teachers both of which tend to 

improve the longer they are in the program. They also make greater gains 

than children who do not participate in such programs (Henderson & 

Mapp, 2002). 

Studies that compared levels of involvement found that achievement 

increased directly with the extent to which parents were engaged in the 

program. Children who participated from all family backgrounds and 

income levels made gains and in some cases, children having the most 

difficulty in school made the greatest gains (Henderson & Mapp, 2002). 

F-2. Do the parental involvement provisions in section 1118 of Title I apply 

to preschool programs? 

All provisions in section 1118 apply to Title I preschool programs except 

the requirement in section 1118 (d)(2)(A) concerning discussion of the 

school-parent compact at parent-teacher conferences in elementary 

schools. [See F-3.]
 March 4, 2004 

23

F-3. Do the LEA and school’s written parental involvement policies apply 

to parents of children in Title I preschool programs?

Yes, as applicable. For example, if an LEA operates a preschool program 

at the district level, the pertinent parent involvement provisions would be 

those applicable to the LEA. 

F-4. What is the relationship between Title I parental involvement policies 

and those in other programs? 

Title I LEAs and schools must, to the extent feasible and appropriate, 

coordinate and integrate Title I parent involvement strategies and activities 

with parent involvement strategies under other programs such as Head 

Start, Reading First, Early Reading First, Even Start, Parents as Teachers 

Program, the Home Instruction Program for Preschool Youngsters, and 

State preschool programs. [Section 1118(a)(2)(D) and 1118(e)(4), ESEA.] 

F-5. How can Title I preschools build capacity for significant parental 

involvement? 

The quality of family environments and parent-child interactions is central 

to a childís literacy development and education. As described in B-10, 

parents strengthen their childís literacy development and school-related 

competencies when they engage in language-rich parent-child interaction, 

provide support for literacy in the family and hold appropriate 

expectations of the childís learning and development. Accordingly, 

preschools can provide parents with educational training in those 

parenting skills most closely associated with childrenís language and 

cognitive development. Furthermore, preschools can share the preschool 

curriculum goals and indicate how parents can support this learning at 

home. 

Also, preschools should create systems for ongoing communication with 

parents, such as regular parent-teacher conferences and frequent reports on 

childrenís progress. Program staff can also work with parents to develop a 

plan to consistently reinforce cognitive skills during summer or other 

extended vacation periods between preschool and kindergarten, which will 

help prevent the loss of previously acquired skills.

Schools or school districts can inform parents of resources on how to 

support their childrenís development, such as directing them to Parent 

Information Resource Centers (PIRCs) funded by the Department. More 

information is available about the PIRCs at: www.pirc-info.net. 

Also, preschools can encourage parents to volunteer in the preschool 

classroom and provide opportunities for parents to observe classroom 

instruction. In addition, those activities identified in the LEA and schoolís 
 March 4, 2004 

24

parental involvement policies have been specifically designed to build 

capacity for parental involvement. 

F-6. May schools include parents of children in Title I preschool programs 

in professional development activities? 

Yes. Title I schools must provide reasonable support for parental 

involvement activities as parents of participating children may request, 

including allowing parents to participate in professional development 

activities that the school or LEA deems appropriate. In addition, LEA 

plans must describe the strategy the LEA will use to coordinate the Title I 

program with professional development programs funded under Title II of 

the ESEA, to provide professional development to principals and teachers 

and, if appropriate, to other individuals including parents. [Section 1118(e), 

ESEA.] [See B-10]

G. Coordination with Other Federal Programs 

G-1. How must Title I preschool programs coordinate with other preschool 

programs providing educational services? 

An LEAís Title I plan must describe how it will coordinate and integrate 

services under Title I with other educational services such as Even Start, 

Head Start, Early Reading First and other preschool programs, including 

its plans for the transition of children in those programs to elementary 

school programs. [Section 1112(b)(1)(E)(i), ESEA.] An LEA must also 

describe, if appropriate, how it will use Title I funds to support preschool 

programs for children, particularly children participating in a Head Start, 

Early Reading First or Even Start program as these children are 

automatically eligible for Title I when then enter kindergarten. An LEA 

may support preschool programs by providing such services directly or 

through a local Head Start agency, an agency operating an Even Start 

program, Early Reading First, or another comparable public early 

childhood education program. [Section 1112(b)(1)(K), ESEA.] 

G-2. How may a school or LEA coordinate the use of Title I funds with 

Even Start Title I, Part B funds? 

SEAs and LEAs have considerable flexibility in coordinating Title I funds 

used for preschool with Even Start funds. For example, an LEA may 

include appropriate Title I activities as part of its Even Start project. A 

Title I preschool program could provide, in full or part, the early 

childhood component of an Even Start project. Similarly, Title I services 

that provide training for parents of Title I participants to help them assist 

in their children's education could also be included in an Even Start 
 March 4, 2004 

25

project. Such coordination is enhanced by several other provisions as 

well. Title I funds may be used to increase parent involvement, including 

family literacy [Section 1118, ESEA]; and Title I funds or in-kind 

contributions may be used to meet the local share requirement under Even 

Start. [Section 1234(b)(1)(B), ESEA.] If an LEA includes Title I activities as 

part of its Even Start project, it must ensure that the Title I activities are 

consistent with the requirements of the Title I program as well as Even 

Start. 

G-3. How may a school or LEA use Title I funds to complement or extend 

Head Start programs? 

In addition to supporting preschool children participating in Title I 

programs, Title I funds may also be used to complement or extend Head 

Start programs. In the examples listed below, all Title I requirements 

apply to the use of Title I fundsó 

• Eligibility for Head Start is based on the income levels of parents. 

Children eligible for Title I because they reside in an eligible 

attendance area and are most at risk of not meeting the Stateís 

challenging student achievement standards, might not qualify for 

Head Start under Head Start's income requirement. In this case, 

Title I funds may be used to provide services to Title I eligible 

children who are not eligible for Head Start services. 

• Head Start may be unable to serve all its eligible students. Title I 

funds may be used to serve unserved children who are also eligible 

for Title I (i.e., those who reside in eligible Title I attendance areas 

and are failing, or most at risk of failing, to meet the State's 

challenging student achievement standards). Note that some Head 

Start-eligible children might not be eligible for Title I. 

• Title I may be used to provide additional services to Head Start 

children who are also eligible for Title I services. This may 

include extending the daily program for additional time or 

increasing the number of days, providing services at times Head 

Start is not operating, or enriching services through provision of 

extra personnel to work with Title I-eligible children. 

• Title I funds may provide educational services for children who are 

eligible for both Title I and Head Start, with Head Start funds 

providing other services. 

G-4. Are children with disabilities eligible to participate in Title I preschool 

programs? 

Yes. Children with disabilities are eligible to receive Title I services on 

the same basis as eligible children without disabilities. 
 March 4, 2004 

26

G-5. Are migrant children eligible to participate in Title I preschool 

programs? 

Yes. Migrant children are eligible to receive Title I services on the same 

basis as eligible non-migrant children. [Section 1115(b)(2)(A), ESEA.] 

G-6. Are Title I preschool programs required to coordinate with Migrant 

Education Program (MEP) services? 

Yes. The statute requires LEAs to coordinate and integrate Title I services 

with services provided at the LEA or school level for migratory children. 

[Section 1112(b)(1)(E)(ii), ESEA.] Similarly, the MEP has a responsibility to 

coordinate with Title I programs. [Section 1304(c)(1)(B), ESEA.] The 

requirements for such coordination increase program effectiveness, 

eliminate duplication, and reduce fragmentation of the instructional 

program. 

 

G-7. What is the relationship between Early Reading First and Title I 

preschool? 

Early Reading First is designed to transform existing early education 

programs, such as Title I preschools, child care agencies and programs, 

Head Start centers, and family literacy programs such as Even Start, into 

centers of early learning excellence that will result in preschool-age 

children developing the early language and cognitive skills they need to 

enter school ready to read. Early Reading First funds provide the 

opportunity for these preschool programs to change the classroom 

environment, provide professional development for staff in scientific 

reading research-based instruction, support preschool childrenís language 

and cognitive development, and use screening assessments and progress 

monitoring to identify and work with preschool children who may be at 

risk for reading failure. [Sections 1221 –1226, ESEA.]

H. Fiscal and Legal Requirements 

I. 

H-1. May Title I funds be used to pay the cost of renting or leasing 

privately owned facilities for preschool instructional purposes or for 

office space? 

Yes. The cost to rent or lease space in privately owned buildings is 

allowable if the space is necessary to ensure the success of the program, 

appropriate space is not available to the grantee, and the cost is reasonable.
 March 4, 2004 

27

H-2. May Title I funds be used for minor remodeling to accommodate a 

preschool program? 

If appropriate space is not available, Title I funds may be used for minor 

remodeling, which means minor alterations in a previously completed 

building and does not involve building construction or structural 

alterations to buildings. [34 CFR Section 77.1(c).]

H-3. May a portion of Title I funds be used to provide preschool 

participants with comprehensive services? 

Yes. If preschool children have need for health, nutrition, and other 

social services, a portion of Title I funds in a targeted assistance school 

may be used to address those needs, if appropriate, based on a 

comprehensive needs assessment and funds are not reasonably available 

from other public or private sources. [Section 1115(e)(2), ESEA.]

 H-4. Must Title I preschools meet the supplement-not-supplant 

requirement? 

Yes. [Section 1120A(b), ESEA.]

H-5. Are children in private preschools eligible for equitable Title I 

services? 

Not generally. Section 1120 of Title I requires an LEA to provide 

equitable services to eligible children who are enrolled in private 

elementary schools and secondary schools. As a result, unless State law 

considers preschools to be part of elementary education, children in 

private preschools are not enrolled in an elementary school and thus are 

not eligible to receive Title I services. 

H-6. What portions of the Education Department General Administrative 

Regulations (EDGAR) apply to Title I preschools? 

The following parts of EDGAR apply to Title I preschools: Parts 76, 77, 

80, 81, 82, 84, 85, 97, 98, and 99. EDGAR is available at: Education 

Department General Administrative Regs (EDGAR). 
 March 4, 2004 

28

Appendix A: Resources on High-Quality Early Childhood Education 

The following resources represent a small sample of the research-based resources 

available on preschool. This list is not exhaustive. The U.S. Department of Education is 

providing the list of resources below for the reader's convenience, and no official 

endorsement by the U.S. Department of Education is intended or should be inferred. The 

views expressed by the authors are their own, and do not necessarily represent the 

policies of the Federal government or the U.S. Department of Education. 

Teaching our Youngest, A Guide for Preschool Teachers and Child-Care Family 

Providers 

This guide, published by the U.S. Department of Education, can be obtained free 

of charge by calling 1-877-EDPUBS (433-7827) or 1-800-USA-LEARN. Order 

on-line at edpubs@inet.ed.gov. 

Reports 

The National Reading Panel (NRP) reviewed more than 100,000 studies on 

reading and identified five components essential to a child's ability to learn to 

read: phonics, phonemic awareness, fluency, vocabulary, and comprehension. 

NRP's findings and their analysis and discussion of these five areas of reading 

instruction are published in Reading First: The Research Building Blocks for 

Teaching Children to Read. Additional information is available at: Report of 

the National Reading Panel: Teaching Children to Read. 

Put Reading First: The Research Building Blocks for Teaching Children to Read 

is designed for classroom teachers. It describes the findings of the NRP and 

provides analysis and discussion in five areas of reading instruction. The 

publication is also available from EDPUBS at no cost by calling 1-877-EDPUBS 

(433-7827) or 1-800-USA-LEARN. Order on-line at edpubs@inet.ed.gov. 

Suggested Reading: Summaries 

Adams, M.J., Foorman, B.R., Lundberg, I., & Beeler, T. (1998). Phonemic Awareness 

in Young Children. Baltimore: Paul H. Brookes Publishing. 

 This book addresses the "research to practice" issue in phonemic awareness and 

includes activities that stimulate the development of "phonemic awareness" in 

early education programs. While most teachers are familiar with the term 

"phonemic awareness" and its importance in the process of acquiring literacy, 

knowing how to teach and support "phonemic awareness" learning has been a 

challenge for many. The authors intend to close the gap between the research 

findings and classroom instruction by providing a developmental curriculum in 

"phonemic awareness" based upon validated classroom research that originated in 

Sweden and Denmark, and was then adapted and researched in classrooms in the 

United States. 
 March 4, 2004 

29

Apel, K., & Masterson, J. (2001). Beyond Baby Talk: From Sounds to Sentences - A 

Parent's Guide to Language Development. California: Prima Publishing. 

 Sponsored by the American Speech-Language-Hearing Association, this book 

describes how children develop language from their earliest words to sentences. 

With the understanding that parents are the primary language role models for their 

children, the authors provide parents with a guide to understanding language 

development as well as ways in which they can interact with their children to 

promote language development. 

Burns, M.S., Griffin, P., & Snow, C.E. (Eds.). (1999). Starting Out Right: A Guide to 

Promoting Children's Reading Success. Washington, D.C.: National Academy Press. 

This book is edited by members of the Committee on the Prevention of Reading 

Difficulties in Young Children. It is intended for parents, teachers, policymakers, 

and community members. The book addresses the following central questions: 

• What kinds of language and literacy experiences should be part of 

all preschool and childcare settings? 

• What should reading instruction look like in kindergarten and the 

early grades? 

• What questions should be asked of school boards, principals, 

elected officials and other policymakers who make decisions 

regarding early reading instruction? 

• Is my child making progress in reading related skills and early 

reading? 

The goal of the book is to share a wealth of knowledge based upon extensive 

guidelines, program descriptions, and advice on resources, and strategies that can 

be used in everyday life. 

Gopnik, A., Meltzoff, A.N., & Kuhl, P.K. (1999). The Scientist in the Crib. New 

York: Morrow. 

 This book looks with great detail into the relationship between science and young 

children's development. There have been many rigorous scientific studies 

conducted that have helped us better understand how babies think and learn. The 

latest research on early childhood development tells us that babies and young 

children know and learn much more about the world around them than we ever 

have imagined. This book is not the typical parenting advice or "how to" book. 

Rather, it strives to take a different road and look at the science of babies' minds. 

Hart, B., & Risley, T.R. (1999). The Social World of Children: Learning to Talk. 

Baltimore: Paul H. Brookes Publishing. 
 March 4, 2004 

30

 This book follows the groundbreaking study reported by Hart and Risley in their 

earlier book, Meaningful Differences in the Everyday Experiences of Young 

American Children. It goes beyond the discussion in the earlier book on the role 

of language experience in the intergenerational transmission of language 

competence and examines the patterns in that transmission. The authors provide 

tables and figures with their data and thoroughly discuss their findings. Hart and 

Risley state that they have a simple message for parents: their conversation 

matters when their children are young. Talking with children provides them with 

experiences that are important to both their cognitive and their social/emotional 

learning. The authors provide evidence that the language tools provided to 

children through conversation can contribute at least as much to a child's future 

success as their heredity and their choice of friends. 

Lyon, G. Reid. (2003) Testimony before The Committee on Health, Education, 

Labor and Pensions, United States Senate. 

Dr. Lyon is Chief of Child Development and Behavior Branch at the National 

Institute of Child Health and Human Development, National Institutes on Health, 

Department of Health and Human Services. His statement is entitled ìThe 

Critical Need for Evidence-Based Comprehensive and Effective Early Childhood 

Programsî and is available at: 2003.07.22: Head Start. 

Neuman, S.B., & Dickinson, D.K. (Eds.). (2001). Handbook of Early Literacy 

Research. New York: Guilford Press. 

This volume examines current research on early literacy and intervention. The

Handbook begins by addressing broad questions about the nature of early literacy, 

and then continues by summarizing current knowledge on cognitive development, 

and emphasizing the importance of cultural contexts in the acquisition of literacy. 

Subsequent chapters focus on various skills and knowledge that emerge as 

children become literate, as well as the roles of peers and families in this process. 

The book devotes attention to the importance of meeting the literacy needs of all 

children and emphasizes the importance of coordinated school, family, and social 

services to provide the necessary support for those children who struggle most in 

school. Various approaches to instruction, assessment, and early intervention and 

research on the efficacy of these approaches are described. 

Reynolds, Arthur J. (2000). Success in Early Intervention: The Chicago ChildParent Centers. Lincoln, Nebraska: University of Nebraska Press. 

 This book reports on the effects of participation in the Title I funded Chicago 

Child-Parent Center (CPC) Program in which over 1,200 low-income preschool 

children participated. Since 1967, the CPCís provided educational and family 

support services from preschool to the early elementary grades for up to six years 

of continuous intervention. The data reported in this monograph are from the 

Chicago Longitudinal Study that began in the spring of 1986. 
 March 4, 2004 

31

The strong support for the cognitive advantage hypothesis found in this study 

indicates that programs may be more likely to have long-term effects if they 

directly impact cognitive and scholastic development during the early childhood 

years. 

Snow, C.E., Burns, S., & Griffin, P. (Eds.). (1998). Preventing Reading Difficulties in 

Young Children. Washington, D.C.: National Academy Press. 

 his book is a summary report developed from the findings of the Committee on 

the Prevention of Reading Difficulties in Young Children. It examines research 

findings to provide an "integrated picture of how reading develops and how 

reading instruction should proceed (p. vi)." The core message of the book with 

regard to reading instruction is: ì reading instruction should integrate attention to 

the alphabetic principle with attention to the construction of meaning and 

opportunities to develop fluency (p. vii)." 

 The research reviewed in this book includes studies on normal reading 

development and instruction; on risk factors that can be useful in identifying 

children at risk for reading failure; and on prevention, intervention, and 

instructional approaches to ensuring the most optimal reading outcomes. The 

committee emphasizes the importance of high-quality preschool and kindergarten 

environments and their contribution to providing a critical foundation to facilitate 

children's acquisition of essential reading skills. 

Whitebrook, Marcy. (2003). Early Education Quality: Higher Teacher 

Qualifications for Better Learning Environments – A Review of the Literature. 

Washington, DC: The Education Trust. 

This report is a review of the literature on the relationship between teacher 

education and training and the quality of early education and care. Specifically, 

the authors draw the conclusion that early childhood classrooms where the 

teachers have at least a Bachelorís degree are more likely to be of higher 

qualityóas in richer language environments, richer literacy environments, and 

better teacher-child interactions.