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Teaching  Case:  Evaluation  of  Preschool  for  California’s  Children

 

 



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Sunshine  said,  however,  that  he  sensed  a  tension  in  the  HFRP  evaluators  at  times  in  straddling  the  

roles  of  producing  traditional,  outcome  data  and  helping  with  strategic  learning.  

 

“We  want  them  to  have  a  point  of  view  and  opinion,”  he  said.  “It  was  hard.  They  saw  themselves  as  



evaluators.  We  would  ask  ‘what  do  you  think?’  They  were  ambivalent  about  it.  We  didn’t  hire  them  

to  do  that.  They  were  so  good  that  they  didn’t  want  to  taint  their  work.  But  we  have  come  to  rely  on  

their  expertise  and  intelligence.  They  did  it.  [But]  you  could  feel  their  ambivalence.  I  don’t  think  you  

can  do  both.”  



 

Playing  the  role  of  an  embedded  strategic  advisor  raises  some  questions  about  the  boundaries  of  

evaluators  using  this  approach.  

 

Reich  said,  “If  evaluators  hope  to  see  their  results  help  with  strategic  learning  they  need  to  be  willing  



to  see  their  clients  less  as  clients  and  a  bit  more  as  partners.  In  evaluation  for  strategic  learning,  

everyone  has  skin  in  the  game.  It  puts  evaluators  in  a  more  nebulous,  less  objective  role.  For  people  

with  rigorous  evaluation  training  that  can  be  an  uncomfortable  place  to  be.”  

 

Weiss  and  Coffman  both  say  that  rather  than  serving  in  the  traditional  role  of  standing  outside  as  



an  impartial  and  distant  evaluator,  they  were  clear  from  the  start  that  they  wanted  to  help  

Packard  succeed  in  its  goal  of  achieving  universal  preschool  in  California.  

 

“A  lot  of  evaluators  have  a  real  problem  with  that  kind  of  role.”  Coffman  notes.  “[In  this  approach],  



you  have  to  integrated  and  be  part  of  the  program  team.  When  we  started  this  evaluation,  we  said  

‘we  believe  in  universal  PreK,  we  want  you  to  succeed  and  we  want  to  help  you  succeed.’”  

 

“This  is  something  I  would  say  with  enormous  respect  and  gratitude,”  Salisbury  said.  “The  Harvard  



evaluators  are  the  dream  team.  I  think  there  is  a  question  for  all  of  us  when  you  work  this  closely  

with  evaluators.  Does  it  compromise  the  evaluation?  No  one  could  have  more  integrity  than  our  

evaluators.  [But]  we  all  like  each  other.  We  are  in  love  with  this  strategy  and  we  feel  like  we’ve  

landed  on  something  really  big  here.  I  don’t  know  what  to  do  with  that.”  

 

Evaluation  Informs  the  Direction  of  the  Preschool  Program  

 

HFRP’s  September  2008  midterm  report  to  the  Packard  Board  said  that  the  Preschool  program  had  

made  considerable  progress  toward  reaching  its  goal  of  achieving  universal  preschool  access,  and  

recommended  specific  strategy  adjustments  to  increase  the  chances  to  make  more  progress.    

Among  the  areas  of  progress  cited  in  the  HFRP  report  were:  

 

•  The  number  of  preschool  legislative  champions  had  nearly  doubled.  Many  of  these  



champions  were  influential,  such  as  Senate  President  pro  Tempore  Darrell  Steinberg.  

•  State  education  spending  on  three-­‐  and  four-­‐year-­‐olds  had  increased  every  year  since  2003  

with  funding  growing  by  $217  million.  

•  In  2008,  the  legislature  passed  three  important  bills  that  Packard  grantees  informed.  All  

were  low-­‐cost  changes  to  improve  the  preschool  system’s  quality  and  efficiency.    



Teaching  Case:  Evaluation  of  Preschool  for  California’s  Children

 

 



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•  Packard  target  communities  were  implementing  some  of  the  highest  quality  preschool  

programs  in  the  state.  

 

Among  the  areas  for  improvement  cited  in  the  HFRP  report  were:  



•  Business  champions  were  lacking.  Few  high-­‐profile  business  champions  had  emerged.  

•  Divisions  in  the  early  care  and  education  community  needed  to  be  addressed.  When  

preschool  is  prioritized,  many  are  concerned  that  infants  and  toddlers  are  being  left  behind.    

•  Targeted  community  investments  could  link  more  effectively  with  state-­‐level  leadership  to  

push  for  policy  progress.  

•  Preschool  access  had  not  increased  substantially  and  would  not  without  a  major  state-­‐level  

policy  change.  

•  California  fell  short  on  preschool  quality.  2008  Rand  research,  sponsored  by  Packard,  found  

that  preschool  quality  across  the  state  was  lacking  and  there  was  substantial  room  for  

improving  preschool  quality  for  all  children.    

•  The  budget  climate  had  reduced  chances  for  near-­‐term  preschool  investments.  Almost  

three-­‐fourths  of  2008  bellwethers  thought  preschool  increases  were  not  likely  in  3  years.  

•  Support  for  a  universal  preschool  policy  had  decreased.  Only  half  of  the  2008  bellwethers  

said  they  wanted  a  universal  policy.  

 

The  HFRP  report  concluded  by  recommending  that  the  Packard  Foundation  adjust  its  2013  

universal  goal  to  a  more  targeted  goal  that  focused  on  reaching  children  in  California  who  need  

preschool  the  most.    

 

Several  Packard  staff  said  that  HFRP’s  midcourse  evaluation  report  informed  the  direction  of  the  



preschool  program.  “The  HFRP  involvement  came  at  a  very  pivotal  time  and  really  helped  inform  our  

thinking  around  the  midcourse  review.  We  ended  up  making  a  dramatic  change,”  Reich  said.  “We  

are  not  going  to  be  about  universal  preschool.  We  would  be  about  low-­‐income  kids  first.”  

 

In  the  long  run,  the  CFC  team  felt  that  high-­‐quality  preschool  for  all  three-­‐  and  four-­‐year-­‐olds  



remained  one  of  the  best  ways,  if  not  the  best  way,  to  ensure  that  all  of  California’s  children  entered  

kindergarten  prepared  to  succeed  in  school  and  in  life.  The  midcourse  review  did  not  lead  staff  to  

rethink  this  core  belief.  Rather,  staff  advocated  for  retaining  high-­‐quality  universal  preschool  as  a  

long-­‐term  aspirational  goal.  

 

However,  as  HFRP’s  data  indicated,  the  prospects  did  not  look  good  for  attaining  universal  preschool  



by  2013.  The  state  budget  outlook—and  for  that  matter,  the  federal  budget  outlook—was  bleak  

until  at  least  2011  and  likely  beyond.  Perhaps  even  more  importantly,  the  appetite  for  a  universal  

program  simply  was  not  yet  strong  enough,  either  among  policymakers  or  the  public.  The  policy  

picture  was  brighter,  however,  for  targeted  preschool  expansions  and  quality  improvements  that  

still  fit  with  the  longer-­‐term  aspiration  goal  but  were  more  realistic  in  the  existing  timeframe.    

 

Given  these  political  and  fiscal  realities,  staff  recommended  narrowing  the  2013  goal  for  the  



preschool  subprogram  as  follows:  The  Packard  Foundation  Preschool  for  California’s  Children  


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