Overview

North Carolina's More at Four program is a state-funded, community-based voluntary pre-kindergarten initiative designed to prepare at-risk four-year-olds for success in school.  Programs are operated in almost all counties in the state by schools, child care centers, and Head Start agencies that can meet quality standards.  North Carolina also funds Smart Start, a separate public-private initiative that supports comprehensive early childhood services for children from birth to kindergarten in all of the state's counties.  Smart Start funding may be used for many purposes, including the support of pre-kindergarten programs. Most of the rules governing the More at Four program are in administrative guidelines, which do not have the force and effect of statute or regulation.

The More at Four program has grown rapidly over the last few years due, in part, to pressure arising from decisions in the school funding case, Hoke County v. State, directing the state to address the needs of students at risk for school failure. According to the National Institute for Early Education Research (NIEER), the pre-k program served approximately 12% of all four-year-olds, or 15,227 children, in 2005-2006, made possible through a funding increase of $16.5 million. The state’s new Education Lottery was expected to generate $425 million a year beginning in 2006, with a substantial portion of net revenues earmarked for prekindergarten programs for at-risk four-year-olds. For FY 2007, $84.6 million from the lottery fund was appropriated for the prekindergarten program. The appropriation was increased to $140.6 million for FY 2008 to help expand More at Four access to an additional 10,000 children.

State Policy

North Carolina law recognizes that the economic future and well being of the state depend upon providing access to high-quality early childhood education and development services to all children who could benefit from it.  The state's preschool guidelines recognize that success in kindergarten depends upon preparation in five major domains. Also, the new Education Lottery addresses the need for high quality prekindergarten programs for at-risk four-year-olds in order to help those four-year-olds be prepared to succeed in school.

Eligibility Criteria 

More at Four is provided to four-year olds deemed at-risk of academic failure. Priority is given to children who have not previously participated in an early care and education program and who are eligible to enter kindergarten the following school year.  Starting in 2004-05, at least 80% of participants must come from families at or below 75% of the North Carolina State median income. Beginning in 2007, children of active duty members of the armed forces were made eligible for the program, as well as children with a parent injured or killed while serving in the military.

Program Length/Duration

More at Four preschool is provided at no cost for 6 to 6 ½ hours per day for a ten month school year.  Extended or wrap-around services may be offered after the regular More at Four school day at a cost to parents.

More at Four has been funded out of general appropriations through the Department of Health and Human Services budget. In August 2005, legislation was enacted creating the North Carolina Education Lottery. Fifty percent of the net revenue from the lottery will be used “to support reduction of class size in early grades to class size allotments not exceeding 1:18 … and to support academic prekindergarten programs for at-risk four-year-olds …” The legislature estimated that the lottery would generate $425 million for education purposes beginning in the 2006-2007 fiscal year.

A local match is currently required for the More at Four program, but the amount is not specified in the law or guidance documents.  Fees may not be assessed to More at Four families for services during the regular school day, but may be charged for wrap-around services and transportation. Fees may be charged for meals for children who are not eligible for free or reduced price lunch.

Quality Standards

North Carolina requires that all More at Four classrooms select and implement a research-based curriculum that has appropriate academic emphasis and research that shows it helps prepare students for success in school.  Six curricula have been recommended to date. In 2005, the state adopted comprehensive early learning standards that are applicable to the More at Four program.

North Carolina also meets NIEER’s benchmark for monitoring through required site visits.

Delivery of Preschool Services

The More at Four program builds on existing service delivery systems and requires shared responsibility in the community for providing pre-kindergarten services to at-risk children.  Programs may be provided by local school boards or private childcare providers that can meet the quality standards.  Private child care centers and Head Start agencies must have a four or five-star license - the top quality ratings under the state's child care licensing system - or have a three-star license and be working towards four stars. The state strongly recommends that public school prekindergarten programs comply with 4 or 5 star licensure requirements.

The More at Four program is under the oversight of the Office of School Readiness in the Department of Public Instruction, which coordinates the efforts of different state programs serving preschoolers, including More at Four, Title I, Even Start, and Exceptional Children programs.

Requirements for Student Assessment and Program Evaluation

The More at Four program must include ongoing assessment of the children, a quality-control system, and a system of accountability.  The Department of Health and Human Services and the Department of Public Instruction are required to report on several aspects of the program, including the number of children, expected expenditures, cost per child, location of program sites, and expansion plans. The More at Four local contract administrator is required to monitor participating preschool programs for programmatic and fiscal compliance. Additionally, the More at Four state office is authorized to evaluate programs using the ECERS rating scale, a standardized measure of early childhood classroom structure and process, and to use the information to assist with program improvements.

Legal Framework

Education Clause in State Constitution

The North Carolina state constitution provides that "[t]he people have a right to the privilege of education, and it is the duty of the State to guard and maintain that right."  The General Assembly is responsible for providing "a general and uniform system of free public schools . . . wherein equal opportunities shall be provided for all students."  The General Assembly may assign the responsibility for financial support of public schools to local government, as appropriate.

Summary of Case Law on School Finance System

North Carolina recognizes that equal access to a sound basic education is a fundamental right guaranteed by the state constitution. Although state courts have denied equal protection challenges to North Carolina's school funding scheme, holding that the constitution does not require equal funding in all school districts, they have also invalidated the school finance system under the education clause on the ground that the system failed to provide adequate resources and services to at-risk children.

In Leandro v. State, the Supreme Court of North Carolina defined a "sound basic education" as one that provides sufficient reading, writing, and arithmetic skills to enable students to function in society; sufficient knowledge of history and politics to enable students to make informed choices; and sufficient academic or vocational skills to enable students to engage in post-secondary or vocational training and to compete with others for gainful employment.  On remand from the Supreme Court, the trial court in Hoke County v. State found that North Carolina had met the Leandro standard with respect to curriculum standards, teacher certification, and accountability standards, but not with respect to adequate resources and services for at-risk children. In July 2004, the Supreme Court affirmed the trial court's finding that the state had failed to provide at-risk students with an opportunity to obtain a sound basic education. Furthermore, the Supreme Court held the state was required to assess its education-related allocations to the county's schools and correct the deficiencies preventing the county from offering its at-risk students the opportunity to obtain a Leandro-conforming education.

On remand from the Supreme Court's decision in Leandro v. State, the trial court in Hoke County v. State raised on its own motion the issue of the right of at-risk children to preschool education.  The court held that the state constitutional right to a sound basic education recognized in Leandro is not dependent upon age, but rather on the needs of the particular child.  The court further found that the state was thereby required to provide a pre-kindergarten program for those children at-risk of not entering kindergarten ready to learn.  In July 2004, the Supreme Court affirmed the trial court's finding that the state had violated the constitutional rights of at-risk four-year olds. However, it reversed the trial court's order requiring the state to fund a preschool program. The court refused to impose a specific remedy at this stage of the school finance case, instead deferring to the expertise of the legislative and executive branches to design an appropriate remedy for at-risk preschoolers.

N.C. Const. art. I, § 15 

The people have a right to the privilege of education, and it is the duty of the State to guard and maintain that right.

 N.C. Const. art. IX, § 2 

   1. General and uniform system: term. The General Assembly shall provide by taxation and otherwise for a general and uniform system of free public schools, which shall be maintained at least nine months in every year, and wherein equal opportunities shall be provided for all students.

   2. Local responsibility. The General Assembly may assign to units of local government such responsibility for the financial support of the free public schools as it may deem appropriate. The governing boards of units of local government with financial responsibility for public education may use local revenues to add to or supplement any public school or post-secondary school program.

N.C. Const. art. IX, § 3 

The General Assembly shall provide that every child of appropriate age and of sufficient mental and physical ability shall attend the public schools, unless educated by other means.

N.C. Const. art. IX, § 5 

The State Board of Education shall supervise and administer the free public school system and the educational funds provided for its support, except the funds mentioned in Section 7 of this Article, and shall make all needed rules and regulations in relation thereto, subject to laws enacted by the General Assembly.

Case Law on the Right to Public Education and Preschool

Is Education a Fundamental Right under the State Constitution?

Britt v. North Carolina State Board of Education, 86 N.C. App. 282, 289, 357 S.E.2d 432, 436 (N.C. App.), rev. denied 320 N.C. 790, 361 S.E.2d 71 (1987)

"The fundamental right that is guaranteed by our Constitution . . . is to equal access to our public schools -- that is, every child has a fundamental right to receive an education in our public schools.  Furthermore, the State is given responsibility for overseeing the public schools of this State in order to ensure that every student in the State receives the education to which he or she is entitled." 

Leandro v. State, 346 N.C. 336, 488 S.E.2d 249 (1997)

Every child is guaranteed "an opportunity to receive a sound basic education."  Leandro, 346 N.C. at 354, 488 S.E.2d at 259.  If the state denies children a sound basic education, "a denial of a fundamental right will have been established," requiring the state to show that its actions are "necessary to promote a compelling governmental interest."  Id. at 357, 488 S.E.2d at 261.

School Finance Cases in Favor of Plaintiffs:

Hoke County Board of Education v. State, No. 95CVS1158, 2000 WL 1639686 (N.C. Super. Oct. 12, 2000)

In Leandro v. State, 346 N.C. 336, 488 S.E.2d 249 (1997), discussed below, the Supreme Court of North Carolina remanded back to the lower court for trial plaintiffs' claim that the state's education funding system did not provide a sound basic education. The remand proceeding is known as Hoke County Board of Education v. State or Leandro II.

On remand, the Superior Court of North Carolina examined the state's education system in light of the Leandro mandate that every child be provided with an equal opportunity to receive a sound basic education.  The Court found, among other things, that:  (1) the state's curriculum guidelines exceeded the Leandro standards for a constitutionally adequate education, provided proper implementation; (2) the state's standards for teacher certification were valid and constitutionally sufficient to ensure qualified teaching; (3) the schools' accountability program was appropriate for measuring and improving the academic performance of public school children; and (4) the state's tests were probative evidence of whether students were receiving the opportunity to obtain a sound basic education.  Hoke, 2000 WL 1639686 at *91. (unpublished opinion)  With respect to at-risk children, however, the Court found that those not presently in quality pre-kindergarten were being denied their fundamental right to receive a sound basic education and ordered the state to expand pre-kindergarten education for at-risk children.  Id. at *113.  In two subsequent decisions, the Court again found that the state had failed to provide sufficient resources to ensure a sound basic education to at-risk children.  See Hoke County Bd. of Educ. v. State, 95 CVS 1158, Orders of March 2001 and April 2002. 

Hoke County Board of Education v. State,  599 S.E.2d 365 (2004) (Leandro II)

The North Carolina Supreme Court affirmed the trial court's finding that the State has violated the rights of at-risk children by failing to provide the resources to enable them to receive a sound basic education, as guaranteed under the North Carolina Constitution.  The Supreme Court affirmed the lower court's remedial order requiring the State to reassess school funding allocations and correct all deficiencies that prevent schools from delivering the constitutionally required education.  In particular, the Court affirmed the trial court's order requiring the State to "structure its proposed solutions to ensure there are competent teachers in classrooms, competent principals in schoolhouses, and adequate resources to sustain instruction and support programs that will aid the ... school children to gain their opportunity to obtain a [constitutionally adequate] education."  The North Carolina Supreme Court reversed the trial court's order requiring the State to provide pre-kindergarten education to at-risk children. Instead, the Court deferred to the expertise of the legislative and executive branches, leaving it to them to design appropriate corrective action to meet the needs of at-risk preschool children.

Standard for a Constitutionally Adequate Education:

Board of Education v. Board of Commissioners of Granville County, 174 N.C. 469, 472, 93 S.E. 1001, 1002 (1917)

"[I]t is manifest that these constitutional provisions were intended to establish a system of public education adequate to the needs of a great and progressive people, affording school facilities of recognized and ever-increasing merit to all the children of the state and to the full extent that our means could afford and intelligent direction accomplish."

Leandro v. State, 346 N.C. 336, 488 S.E.2d 249 (1997)

 "Article I, Section 15 and Article IX, Section 2 of the North Carolina Constitution combine to guarantee every child of this state an opportunity to receive a sound basic education in our public schools. For purposes of our Constitution, a 'sound basic education' is one that will provide the student with at least: (1) sufficient ability to read, write, and speak the English language and a sufficient knowledge of fundamental mathematics and physical science to enable the student to function in a complex and rapidly changing society; (2) sufficient fundamental knowledge of geography, history, and basic economic and political systems to enable the student to make informed choices with regard to issues that affect the student personally or affect the student's community, state, and nation; (3) sufficient academic and vocational skills to enable the student to successfully engage in post-secondary education or vocational training; and (4) sufficient academic and vocational skills to enable the student to compete on an equal basis with others in further formal education or gainful employment in contemporary society." Leandro, 346 N.C. at 347, 488 S.E.2d at 255 (citing Rose v. Council for Better Educ., Inc., 790 S.W.2d 186, 212 (Ky. 1989) and Pauley v. Kelley, 162 W.Va. 672, 705-06, 255 S.E.2d 859, 877 (1979)).

School Finance Cases against Plaintiffs:

Britt v. North Carolina State Board of Education, 86 N.C. App. 282, 289, 357 S.E.2d 432, 436 (N.C. App.), rev. denied 320 N.C. 790, 361 S.E.2d 71 (1987)

The North Carolina Court of Appeals found in this case that the method of financing the state public schools was constitutional, "since plaintiffs have not alleged that they are being denied an education, but only that they are not receiving the same educational opportunities as students in some other places in the State."  The Court noted that "the State is required to provide a general and uniform education for the students in its charge," but ruled that "there is no requirement that it provide identical opportunities to each and every student."

Leandro v. State, 346 N.C. 336, 349, 488 S.E.2d 249, 256 (1997)

In this action alleging violations of the state constitutional right to equal educational opportunity resulting from disparities in wealth among school districts, the North Carolina Supreme Court found that "the equal opportunities clause of Article IX, Section 2(1) does not require substantially equal funding or educational advantages in all school districts . . . [T]he provisions of the current state system for funding schools which require or allow counties to help finance their school systems and result in unequal funding among the school districts of the state do not violate constitutional principles." At the same time, the Court found that the state was responsible for providing adequate funding and services to ensure that all students receive a sound basic education.

Banks v. County of Buncombe, 128 N.C. App. 214, 222-23, 494 S.E.2d 791, 796-97 (N.C. App. 1998)

Hoke County Board of Education v. State, No. 95CVS1158, 2000 WL 1639686 (N.C. Super. Oct. 12, 2000)

Plaintiffs complained that the Hoke County school system lacked the resources to provide its students the opportunity for a sound basic education and that the present system of funding was unconstitutional because it did not take the varying educational needs of children into account.  The Superior Court of Wake County held that the state's education funding system was sound and flexible enough to provide adequate funding to all school districts. However, see the discussion of Hoke above, regarding the court’s finding regarding at-risk students.

Decisions Ruling School Finance Issues Were Non-Justiciable:

None.  But see Leandro v. State, 346 N.C. 336, 488 S.E.2d 249 (1997).

In Leandro, the North Carolina Supreme Court rejected the "nonjusticiable political question" defense raised by the state.  "It has long been understood that it is the duty of the courts to determine the meaning of the requirements of our Constitution. When a government action is challenged as unconstitutional, the courts have a duty to determine whether that action exceeds constitutional limits. Therefore, it is the duty of this Court to address plaintiff-parties' constitutional challenge to the state's public education system." Leandro, 346 N.C. at 344, 488 S.E.2d at 253. However, "the courts of the state must grant every reasonable deference to the legislative and executive branches when considering whether they have established and are administering a system that provides the children of the various school districts of the state a sound basic education.  Only . . . a clear showing will justify a judicial intrusion into an area so clearly the province, initially at least, of the legislative and executive branches as the determination of what course of action will lead to a sound basic education."  Id. at 357, 488 S.E.2d at 261.

Cases Related to State-Funded Preschool:

Hoke County Board of Education v. State, No. 95CVS1158, 2000 WL 1639686 (N.C. Super. Oct. 12, 2000)

In this case alleging denial of adequate educational opportunity to children in poor districts as a result of the state's school funding system, the Superior Court raised on its own motion the issue of the rights of pre-kindergarten age children - specifically, whether the constitutional rights enumerated in Leandro extended to certain "at risk" children before they reach the age of five.  The plaintiffs then filed amended complaints alleging the need for pre-kindergarten programs in order to prepare "at-risk" children to be able to take advantage of the opportunity for a sound basic education.

The Court held, "Under the North Carolina Constitution as interpreted by Leandro, the right of each child to an equal opportunity to receive a sound basic education in the public schools is not to be conditioned upon age, but rather upon the need of the particular child, including, if necessary, the equal opportunity of an at-risk child to receive early childhood pre-kindergarten education prior to reaching the age of five and prior to entering five-year old kindergarten . . . The Court's decision does not require the State of North Carolina to provide every four (4) year old child with a pre-kindergarten program at state expense. A universal four year old pre-kindergarten program is not required to meet the sound basic education standard of Leandro because, fortunately, the majority of four year olds are not at-risk and are able to enter ... kindergarten at age five ready to learn."  Hoke, 2000 WL 1639686 at *113

Hoke County Board of Education v. State, 599 S.E.2d 365 (2004) (Leandro II)

In a July 2004 decision, the North Carolina Supreme Court reversed a 2000 trial court decision directing the State to fund preschool education for all low-income students at risk for school failure. The Court agreed with the trial court's finding that the State's efforts towards providing assistance to disadvantaged pre-kindergarten children were constitutionally inadequate.  However, the Court refused to order preschool education as a remedy for two reasons: (1) the separation of powers doctrine required that the Court defer to the legislature to devise a remedy for preschool children, at least at this point in the litigation; and (2) there was insufficient evidence in the record that preschool would ameliorate the learning disadvantageous of low-income children.

Hoke County v. State of North Carolina, Superior Court, Wake County

Following the North Carolina Supreme Court's 2004 decision in Hoke County (Leandro II), the Leandro case is proceeding on remand on the factual allegations regarding the inadequacy of public education in the state's low-wealth, urban school districts. The remand trial is proceeding before Judge Howard Manning, Jr., who presided over the Hoke County trial.

Statutes, Regulations and Guidance Documents on State Preschool Program

North Carolina General Statutes (N.C. Gen. Stat.) §143B-168.10 et seq., Early Childhood Initiatives - Smart Start

North Carolina General Statutes (N.C. Gen. Stat.) § 18C-160 et seq., North Carolina State Lottery Fund

(The More at Four program is not codified in the General Statutes, but is enacted each year by the General Assembly in the Session Laws as part of the annual Current Appropriations and Capital Improvements Appropriations Act.)

North Carolina Session Laws 2006-66, § 10.67, More at Four Program

North Carolina Session Laws 2007-323, § 7.24, More at Four Program

Non-regulatory guidance provided in More at Four Pre-Kindergarten Program: Program Guidelines and Requirements, referred to as Guidelines below.

Provisions Expressing State Policy on Preschool:

N.C. Gen. Stat. § 143B-168.10: The General Assembly finds, upon consultation with the Governor, that every child can benefit from, and should have access to, high-quality early childhood education and development services. The economic future and well-being of the State depend upon it. To ensure that all children have access to high-quality early childhood education and development services, the General Assembly further finds that:

   (1) Parents have the primary duty to raise, educate, and transmit values to young preschool children;

   (2) The State can assist parents in their role as the primary caregivers and educators of young preschool children; and

   (3) There is a need to explore innovative approaches and strategies for aiding parents and families in the education and development of young preschool children.

Guidelines at 1-1: The mission of the More at Four Pre-kindergarten Program is to deliver high-quality prekindergarten services to prepare at-risk children in North Carolina for school success.

Programs participating in the More at Four Pre-Kindergarten Program are required to meet high-quality standards.   The More at Four Pre-Kindergarten Program standards are built on the premise that in order to be successful academically in school, children need to be prepared in all five of the major domains of development outlined by the National Education Goals Panel.  Each of these domains is critical to children's well being, in particular for their success in reading and math as they come to school.  The five domains, as reflected in Foundations: Early Learning Standards for North Carolina Preschoolers and Strategies for Guiding Their Success, are:

• Approaches to learning
• Emotional and social development
• Health and physical development
• Language development and communication
• Cognition development

N.C. Gen. Stat. § 18C-164(c):

The Commission shall distribute the remaining net revenue of the Education Lottery Fund, as follows, in the following manner:

(1) A sum equal to fifty percent (50%) to support reduction of class size in early grades to class size allotments not exceeding 1:18 in order to eliminate achievement gaps and to support academic prekindergarten programs for at-risk four-year-olds who would otherwise not be served in a high-quality education program in order to help those four-year-olds be prepared developmentally to succeed in school.

…

Eligibility Criteria for State Preschool Program:

N.C. Session Laws 2007-323, § 7.24(a): . . . for at-risk four-year-olds who are at risk of failure in kindergarten . . . .  The program shall include:

  (1) A process and system for identifying children at risk of academic failure.

  (2) A process and system for identifying children who are not being served in formal early education programs, such as child care, public or private preschools, Head Start, Early Head Start, early intervention programs, or other such programs, who demonstrate educational needs, and who are eligible to enter kindergarten the next school year, as well as children who are underserved. ...

N.C. Session Laws 2007-323, § 7.24(d): For the 2007-2008 and 2008-2009 fiscal years, the "More At Four" program shall establish income eligibility requirements for the program not to exceed seventy-five percent (75%) of the State median income. Up to twenty percent (20%) of children enrolled may have family incomes in excess of seventy-five percent (75%) of median income if they have other designated risk factors. Furthermore, any age-eligible child of (i) an active duty member of the armed forces of the United States, including the North Carolina National Guard, State military forces, or a reserve component of the armed forces, who is ordered to active duty by the proper authority within the last 18 months or expected to be ordered within the next 18 months, or (ii) a member of the armed forces of the United States, including the North Carolina National Guard, State military forces, or a reserve component of the armed forces, who was injured or killed while serving on active duty, shall be eligible for the program.

Guidelines § 3.A. More at Four Child Enrollment Eligibility and Service Priority

Children served in a More at Four slot must meet age requirements, income eligibility, or eligibility for children in military families, and service priority criteria as defined in this section.

Age Requirements.

1. Children to be enrolled must be four years of age on or before October 16th in the year served.

2. Children age eligible for kindergarten cannot be served with More at Four funds. . . .

Eligibility by Income

Eligibility for More at Four is determined by family size and gross income. Children in families with annual incomes at or below 75% of the State Median Income (SMI) level are eligible for More at Four services (See Table 1 [omitted]).
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Eligibility for Families above 75% of the State Median Income (SMI) Level

When a family’s gross income exceeds 75% of the State Median Income (SMI), a child may be deemed eligible if the following conditions are met. Their gross income is below 300% of poverty* (See Table 2 [omitted]), and they meet one of the criteria listed below:

• Limited English Proficiency (LEP) as indicated by the family and/or child speaking limited or no English in the home;
• Identified Disability as indicated by the child having a current Individualized Education Program (IEP);
• Chronic Heath Condition as indicated by a health care provider diagnosis, e.g., asthma, childhood obesity, sickle cell anemia, cancer, HIV;
• Developmental/Educational Need as indicated by the child performance results on a developmental screen.

Up to 20% of a county's/region’s More at Four slots may be filled by children above the 75% of the State Median Income level. Children meeting military eligibility are excluded from this percentage.

* A request for an exception to the 300% poverty cap may be made if compelling evidence exists that the child in question would best be served in the More at Four Program.

Temporary Assistance to Needy Families Maintenance of Effort (TANF MOE)

When a child is determined eligible for services, a % of poverty category must be determined (See Table 2 [omitted]), entered on the Eligibility/Enrollment Scorecard sheet and in MAFKids. This information will be used to determine TANF MOE.

Eligibility for Children in Military Families

A child is eligible for More at Four if at least one parent or legal guardian of this child is an active duty member of the armed forces of the United States (Army, Navy, Marine Corps, Air Force and Coast Guard) or the North Carolina National Guard or other state military force, or a Reserve Unit of the armed forces who is ordered to active duty by the proper authority within the last 18 months or expected to be ordered within the next 18 months. A child whose parent or legal guardian has been seriously injured or killed while on active duty is also eligible.
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Guidelines § 3.B. Service Priority Status

After a pool of eligible children is determined, service priority status (served vs. unserved) should be used to prioritize those children for More at Four services.

1. Unserved Children

a. Children who have never been served in any preschool or child care setting.

b. Children who are currently unserved (previously in preschool or child care setting).

c. Children served for 5 months or less in the year prior to service in the More at Four program in any preschool or child care setting..

2. Underserved Children

a. Children who are in unregulated child care that does not meet the More at Four Pre-K standards.

b. Children who are not receiving subsidy, but are in some kind of regulated preschool or child care setting,

c. Other children, including those in pre-kindergartens or child care that do not meet More at Four program standards. This is the last resort and documentation that children who fit the unserved category were diligently recruited should be available. 

Exception

Fifty percent (50%) of the More at Four Pre-K slots designated to a site can be used to serve that site’s three-year-old children when they become age eligible for More at Four and meet More at Four eligibility requirements.

Program Length/Duration:

Guidelines § 4.B. Service Delivery

Official More at Four Day and Year

1. More at Four Pre-Kindergarten sites must provide a pre-kindergarten program for a regular school day (e.g., 6 or 6 ½ hours) for a 10-month (180 instructional days a year) school calendar year.  If a More at Four site is not located in the public schools, the hours of operation should be consistent with the school system in the geographic area where the site is located.  Additionally, the site's 180 day schedule should generally track the local public school calendar.  If there is a need to deviate, the More at Four provider must submit a specific 180 day calendar to the local More at Four contractor.

2. Days set aside for home visits and staggered entry at the beginning of the school year may be included as part of the 180-day school calendar year.

Guidelines § 4.C. Program Fees– Wraparound Services and Fees

More at Four dollars may not be used to pay for wraparound services (time periods before or after the regular school day). When wraparound services are provided before and/or after the regular school day, during holidays, or summer months, the provider may charge a fee for that service or accept a subsidy voucher from a participating family.

Scope of State’s Responsibility to Provide Preschool:

N.C. Session Laws 2007-323, § 7.24(a):  The Department of Public Instruction shall continue the implementation of the "More At Four" pre-kindergarten program for at-risk four-year-olds who are at risk of failure in kindergarten. The program is available statewide to all counties that choose to participate, including underserved areas. The goal of the program is to provide quality pre-kindergarten services to a greater number of at-risk children in order to enhance kindergarten readiness for these children. . . .

N.C. Session Laws 2007-323, § 7.24(b):  The Department of Public Instruction shall implement a plan to expand "More At Four" program standards within existing resources to include four- and five-star-rated centers and schools serving four-year-olds and develop guidelines for these programs . . . . The “NC Prekindergarten Program Standards Initiative” shall recognize four- and five-star-rated centers that choose to apply and meet equivalent "More at Four" program standards as high quality pre-k classrooms. Classrooms meeting these standards shall have access to training and workshops for "More at Four" programs. Whenever expansion slots are available, these classrooms shall have first priority to receive them.

Scope of State's Responsibility to Fund Preschool:

N.C. Session Laws 2007-323, § 7.24(a):  The ["More at Four"] program shall include:

. . . (6) Guidelines for a system to reimburse local school boards and systems, private child care providers, and other entities willing to establish and provide pre-kindergarten programs to serve at-risk children.

 . . . (10) A local contribution. Programs must demonstrate that they are accessing resources other than "More at Four".

 . . . (12) Consideration of the reallocation of existing funds. In order to maximize current funding and resources, the Department of Health and Human Services and the Department of Public Instruction shall consider the reallocation of existing funds from State and local programs that provide pre-kindergarten related care and services.

N.C. Session Laws 2007-323, § 7.24(b): . . . The “NC Prekindergarten Program Standards Initiative” shall recognize four- and five-star-rated centers that choose to apply and meet equivalent "More at Four" program standards as high quality pre-k classrooms. Classrooms meeting these standards shall have access to training and workshops for "More at Four" programs. Whenever expansion slots are available, these classrooms shall have first priority to receive them.

N.C. Session Laws 2007-323, § 7.24(c):  The Department of Public Instruction shall submit a report by February 1, 2008, to the Joint Legislative Commission on Governmental Operations, the Joint Legislative Education Oversight Committee, the Senate Appropriations Committee on Education, the House of Representatives Appropriations Subcommittee on Education, and the Fiscal Research Division. This final report shall include the following:

. . . (3)  The expected expenditures for the programs and the source of the local match for each grantee.

. . . (5)  A comprehensive cost analysis of the program, including the cost per child served by the program.

N.C. Session Laws 2007-323, § 7.24(e): The "More At Four" program funding shall not supplant any funding for classrooms serving four-year-olds as of the 2005-2006 fiscal year. Support of existing four-year-old classrooms with "More at Four" program funding shall be permitted when current funding is eliminated, reduced or redirected as required to meet other specified federal or State educational mandates.

Guidelines § 4.C. Program Fees

The only fees that may be charged to More at Four families for services are nominal fees for transporting children to/from the More at Four program, or fees to cover the partial/full costs of meals when families do not qualify for free/reduced priced meals.

Wraparound Services and Fees

More at Four dollars may not be used to pay for wraparound services (time periods before or after the regular school day). When wraparound services are provided before and/or after the regular school day, during holidays, or summer months, the provider may charge a fee for that service or accept a subsidy voucher from a participating family. (See Division of Child Development - Subsidy Questions and Answers Related to the More at Four Pre-Kindergarten Programs; Program Information/Supplemental Materials to the Guidelines)

Transportation Plan and Fees

Plan. A written plan showing how the transportation needs of potential children to be served shall be developed by the contractor and/or sites. Legislation allows for transportation of any More at Four child to any More at Four site on public school buses. If, after careful review, it is determined that transportation cannot be provided, the contractor must maintain a written record of what was considered.

Fees. Resources may include the use of More at Four funds for the More at Four portion of the day. In particular instances and, as approved by the More at Four Committee, families may be charged a nominal fee to offset transportation cost. Eligible children should not be denied services based on the family’s inability to pay for transportation services.

Guidelines § 4.D Nutrition

Programs must provide breakfast and/or snacks and lunch meeting USDA requirements during the regular school day. Fees may be charged to cover the full/partial costs of meals when children do not qualify for free/reduced price lunch.

Source of Funding for Preschool Program:

N.C. Gen. Stat. § 18C-164:

(a) … The net revenues of the North Carolina State Lottery Fund shall be transferred four times a year to the Education Lottery Fund, which shall be created in the State treasury.

(b) From the Education Lottery Fund, the Commission shall transfer a sum equal to five percent (5%) of the net revenue of the prior year to the Education Lottery Reserve Fund.

…

(c) The Commission shall distribute the remaining net revenue of the Education Lottery Fund, as follows, in the following manner:

(1) A sum equal to fifty percent (50%) to support reduction of class size in early grades to class size allotments not exceeding 1:18 in order to eliminate achievement gaps and to support academic prekindergarten programs for at-risk four-year-olds who would otherwise not be served in a high-quality education program in order to help those four-year-olds be prepared developmentally to succeed in school.

…

Scope of Child's Right to Attend Preschool:

None.

Curriculum Content Standards for Preschool Program:

N.C. Session Laws 2007-323, § 7.24(a):  The [More at Four] program shall include:

 . . . (3)  A curriculum or several curricula that are research-based and/or built on sound instructional theory. These curricula shall: (i) focus primarily on oral language and emergent literacy; (ii) engage children through key experiences and provide background knowledge requisite for formal learning and successful reading in the early elementary years; (iii) involve active learning; (iv) promote measurable kindergarten language-readiness skills that focus on emergent literacy and mathematical skills; and (v) develop skills that will prepare children emotionally and socially for kindergarten.

Guidelines § 5.D.  Instructional Components and Standards

Early Learning Standards

Local More at Four programs are expected to provide developmentally appropriate, high-quality pre-kindergarten experiences for children. Such experiences are supported by Foundations: Early Learning Standards for North Carolina Preschoolers and Strategies for Guiding Their Success. These expectations define the areas of child growth and development that should be the focus of daily activities. ...

Instructional Assessment

Ongoing assessment for instructional purposes is an integral part of high-quality programs and is required for More at Four children. Such assessments provide feedback about instruction and evidence of child growth and skill development. Both formal and informal assessments can achieve this goal. The following instruments are recommended.

Recommended assessment instruments:

• High Scope Child Observation Record (COR) (second edition)
• Work Sampling System (Meisels)
• Creative Curriculum Assessment Tool
• Galileo On-line Assessment System
• Learning Accomplishment Profile – Third Edition (LAP-3)

Training in appropriate use of screening and assessment instruments for instructional planning should be part of initial staff development for all teaching staff that have not previously completed appropriate training on these instruments.

Curricula for More at Four Pre-K Programs

Curricula that have been reviewed and recommended to date include:

• Bright Beginnings pre-Kindergarten Curriculum (Version 2, 2001)
• The Creative Curriculum for Preschool (third edition, 2000; or fourth edition, 2002)
• Educating Young Children: Active Learning Practices for Preschool and Child Care Programs (High Scope) (second edition 2002)
• The Montessori Method
• Explorations with Young Children:  A Curriculum Guide from the Bank Street College (copyright 1992)
• Opening the World of Learning (copyright 2005)

Curricula and daily activities are the tools used by instructional staff to provide opportunities for children’s learning as described in the widely held expectations of Foundations: Early Learning Standards for North Carolina Preschoolers and Strategies for Guiding Their Success.

Training in appropriate use of curriculum should be part of initial staff development for all teaching staff that have not previously completed appropriate training.  Ongoing staff development should also provide support related to implementing the curriculum.

Teacher Certification/Qualification Standards for Preschool Program:

Guidelines § 6.B. Instructional Staff Standards

Instructional staff is expected to work in direct contact with children in the More at Four programs for at least a 30-hour work week.  In addition to direct, day-to-day instructional activities, instructional staff will need additional time during the work week for other instructional related activities, including time for planning, scheduling and conducting home visits, meeting with children's families, and/or attending required professional development activities.  These related activities should take place outside the 6 – 6 ½ hour day, and should not exceed 40 hours per week. Local programs will determine the length of the staff day and year based on meeting staff’s ongoing professional development needs. …

Guidelines § 6.C. Teacher Credentials

All teachers will hold Birth-Kindergarten (B-K) Standard Professional II or Preschool Add-on licensure. When teachers have less than the required credential, the following requirements apply:

1. Provisional Approval

a. Public Schools

Teachers will hold at least a

(i) BA/BS degree and Lateral Entry License and be working toward B-K /Preschool Standard Professional I.

or

(ii) Another NC or other state’s license and a Provisional B-K license and be working toward B-K Standard Professional I or Preschool Add-on licensure.

b. Nonpublic Schools (Private Child Care/Pre-Kindergarten Settings)

(i) Teachers will hold a minimum of an Early Childhood Education/Child Development (ECE/CD) associate degree and be working toward B-K licensure.;

or

(ii) Teachers will hold a BA/BS degree in early childhood, child development, or a related field, and a Lateral Entry License and be working toward B-K licensure. Related fields include human development and family studies and psychology.

or

(iii) Another NC or other state’s license and a Provisional B-K license and be working toward B-K Standard Professional I or Preschool Add-on Licensure.

…

Teachers in More at Four classrooms shall not serve as the administrator of the child care center while assigned to a More at Four classroom.

Guidelines § 6.D. Teacher Assistant Credentials

All assistants will hold a CDA (Child Development Associate) credential or an Early Childhood Education/Child Development (ECE/CD) associate degree.  When teacher assistants have less than a CDA or an ECE/CD associate degree the following requirements apply:

a. Provisional Approval – Nonpublic Schools (Private Child Care/Pre-Kindergarten Settings)

(i) Assistants will hold a high school diploma or GED equivalent and be working toward the CDA (minimum) or ECE/CD associate degree.

(ii) Progress toward the CDA or ECE/CD associate degree will be considered a minimum of six documented semester hours per year.

b. Exception

(i) Public schools: Teacher assistants employed by public schools are exempt from this requirement to hold a CDA or ECE/CD associate degree if they meet the following:

a. Meet employment requirements outlined by the federal “No Child Left Behind” (NCLB) legislation, and have one of the following:

i. Six documented hours of coursework in early childhood education, or

ii. Two years of work experience in an early childhood setting.

(ii) Non-public schools: Teacher assistants working in private settings with a BS/BA degree in early childhood or child development or a related field (as defined by the local education agency) would meet the education requirement.

Guidelines § 6.A. Administrator Credentials

1. Public Schools 

a. Principal licensure is required.

b. All principals/directors are encouraged to hold a BS degree or complete coursework in ECE/CD.

2. Nonpublic Schools (Private Child Care/Pre-Kindergarten Settings)

Directors/administrators of nonpublic schools must have a North Carolina Early Childhood Administrative Credential (NCECAC) Level III. When the director/administrator has less than the required NCECAC Level III, the following will apply:

a. Provisional approval will be given for four years for the director/administrator with NCECAC I or II to obtain the NCECAC Level III.

b. Progress toward NCECAC Level III will be considered a minimum of six documented semester hours per year. The local More at Four contractor will maintain documentation of the progress towards the required standard.

c. Administrators showing good faith effort towards meeting the credential requirement may be granted an extension to the four-year timeline. Local programs must request the extension in writing directed to the More at Four State Program.

Guidelines § 6.H Professional Development for More at Four Staff

Local Level.  Local professional development opportunities for More at Four teachers, teacher assistants, and administrators should, at a minimum, include (to the extent feasible and that funds are available):

1. Orientation session for new teachers, assistants, and administrators that provides an overview of the focus and purpose of the More at Four Pre-Kindergarten Program, program requirements, and program elements.

2. Ongoing professional development by qualified presenters and based on the needs of the staff …

State-Level.  The More at Four pre-K State Program will offer professional development opportunities for teachers, teacher assistants, and administrators, to the extent feasible and that funds are available.

Teachers with Lateral Entry, Provisional B-K, or B-K Standard Professional I licensure are subject to the North Carolina State Board of Education (SBE) Teacher Licensure Policy and procedures, which requires teachers to participate in other orientation, training, and ongoing professional development activities. ...

Other Quality Standards for Preschool Program:

N.C. Session Laws 2007-323, § 7.24(a):  The [More at Four] program shall include:

. . . (4)  An emphasis on ongoing family involvement with the pre-kindergarten program.

. . . (9)  Standards for minimum teacher qualifications. A portion of the classroom sites initially funded shall have at least one teacher who is certified or provisionally certified in birth to kindergarten education.

Guidelines § 3.B.  Children with Disabilities.

More at Four programs are encouraged to be inclusive. The value of inclusive settings ensures that each child’s strengths, unique learning needs, and abilities are addressed.

Because public schools are required by federal law to provide special education to eligible 4-year-olds, More at Four Pre-Kindergarten Programs, regardless of the setting, and public schools will collaborate in the development and implementation of a child's IEP (Individualized Education Program).

Guidelines § 5.E. Staff-to-Child Ratio and Class Size.

A More at Four Pre-Kindergarten Program will not exceed a maximum staff to child ratio of 1 to 9 with a maximum class size of 18 children, with one teacher and one assistant teacher per classroom.  Programs that provide for inclusive settings for children with disabilities may require an adult to child ratio smaller than 1 to 9 depending on the nature and severity of the disabilities of children served. Programs serving children that do not speak English, have limited English proficiency, or a chronic health condition may also require an adult to child ratio smaller than 1 to 9.

Guidelines § 4.D.  Nutrition.  Programs must provide breakfast and/or snacks and lunch meeting USDA requirements during the regular school day. Fees may be charged to cover the full/partial costs of meals when children do not qualify for free/reduced price lunch. 

Guidelines § 4.F.  Religious Activities in Child Care Centers which accept More at Four Funding.  If a child care center accepts funding from More at Four, then to be consistent with various judicial decisions, during the time the center is offering More at Four programs, staff activities or communications which promote religious beliefs or activities cannot be directed towards More at Four participants.  This includes but is not limited to worship services, teacher led prayer, or religious instruction.  Furthermore, various court rulings suggest that More at Four participants must be insulated from religious communications or activities that may occur in other parts of the center during that time.  More at Four participants shall not be prevented from engaging in their personal religious practices, provided those practices are not initiated by center staff and do not disrupt the instructional environment.

Guidelines § 5.F.  Family Involvement..

Family involvement is critical to the success of children during the pre-kindergarten year and in subsequent years.  Programs shall provide meaningful opportunities for parents and families that build trusting relationships and foster a bond between those involved in the education of the More at Four child . . .

Guidelines § 4.E. Transitions.

Written transition plans should be developed by the More at Four contractor and/or sites and should:

• 1. Specify how children will transition into the More at Four classroom.
• 2. Specify how children will transition into kindergarten.
• 3. Reflect the diversity and uniqueness of children, families and communities.
• 4. Be revised as ongoing transition efforts are expanded . . . .

Guidelines § 4.C. Transportation Plan and Fees.

Plan. A written plan showing how the transportation needs of potential children to be served shall be developed by the contractor and/or sites.  Legislation allows for transportation of any More at Four child to any More at Four site on public school buses. If, after careful review, it is determined that transportation can not be provided, the contractor must maintain a written record of what was considered.

Fees. Resources may include the use of More at Four funds for the More at Four portion of the day. In particular instances and, as approved by the More at Four Committee, families may be charged a nominal fee to offset transportation cost.  Eligible children should not be denied services based on the family's inability to pay for transportation services.

Guidelines § 4.A. Facility Licensing Requirements. 

Each participating More at Four classroom must be located in a facility that meets the requirements for a 4- or 5-star licensed center using the Division of Child Development licensing standards. More at Four classrooms may be placed in 4 or 5 star licensed public and nonpublic schools. Nonpublic schools are defined as private for-profit child care centers, not-for-profit child care centers, and Head Start programs operated by nonprofit organizations. Public schools are defined as public pre-kindergarten programs and Head Start programs operated by public schools.

Guidelines § 7.A. ECERS-R Assessments.

... 2. The More at Four State Program will be responsible for contracting for the classroom assessments and selecting classrooms for the assessments. To the extent possible, classrooms will be assessed in their second year of operation as a More at Four classroom.

…4. Classrooms must score a minimum of 5.0 on the ECERS-R during the first (second year of operation) and any subsequent evaluations, effective SFY 2007-2008.

Guidelines § 7.B. Reported Child Abuse and Neglect Investigations.

The NC Division of Child Development will notify the NC Office of School Readiness anytime there is an open abuse and neglect investigation occurring in a More at Four site.

Delivery of Preschool Services:

N.C. Session Laws 2007-323, § 7.24(a):  The [More at Four] program shall include:

Guidelines § 2.A. Purpose of the More at Four Committee.

The authorizing legislation for the More at Four Pre-Kindergarten Program requires: “a system built upon existing local school boards and systems, private child care providers, and other entities that demonstrate the ability to establish or expand pre-kindergarten capacity.”

In complying with this legislative mandate, the More at Four Pre-Kindergarten Program requires every county (or region) that chooses to participate in More at Four to establish and maintain a County/Region More at Four Committee. The purpose of the committee is to:

1. select a contractor agency;

2. develop operational policies and procedures;

3. ensure collaboration and shared responsibility for developing, approving, and implementing the local plan for delivering More at Four Pre-K services at the community level;

4. ensure that services are built on the existing early childhood service delivery system and that service providers in the community that have the ability to provide More at Four Pre-K services have the opportunity to express interest and be considered;

5. provide ongoing, collaborative advice about local policies and procedures in the implementation of More at Four Pre-K services; and

6. provide oversight for the local program (both program and fiscal).

Guidelines § 4.A.  Facility Licensing Requirements.

Each participating More at Four Pre-Kindergarten Program must be located in a facility that meets the requirements for a 4- or 5-star licensed center using the Division of Child Development licensing standards. More at Four classrooms may be placed in 4 or 5 star licensed public and nonpublic schools. Nonpublic schools are defined as private for-profit child care centers, not-for-profit child care centers, and Head Start programs operated by nonprofit organizations. Public schools are defined as public pre-kindergarten programs and Head Start programs operated by public schools.

Exceptions

1. Licensed three-star child care centers and Head Start programs (Nonpublic Schools): Three star centers must work to attain a rating of at least 4 stars to continue participation in the More at Four Pre-K Program. A period of 3 years will be granted for programs to move to a 4 or 5 star level.

2. Non-licensed public school pre-kindergarten programs (Public Schools): Public school pre-school programs that are not licensed under the Division of Child Development’s star-rated licensing system may participate in the More at Four Pre-K Program. However, the Office of School Readiness/More at Four State Program strongly recommends that such programs come into compliance with 4 or 5 star licensure.

Participating non-licensed public pre-kindergarten programs are required to use developmentally appropriate practices in managing and redirecting children’s behavior, which does not include the use of corporal punishment.

North Carolina Session Laws 2006-66, § 7.18(a)

The More at Four program and the Office of School Readiness are transferred from the Office of the Governor to the Department of Public Instruction effective July 1, 2006. …The Office of School Readiness will provide oversight to the More at Four program and other related early childhood and prekindergarten education experiences. An Executive Director for the Office of School Readiness will be appointed by the State Board of Education.

Requirements for Student Assessment and Program Evaluation:

N.C. Session Laws 2007-323, § 7.24(a): The [More at Four] program shall be consistent with standards and assessments established jointly by the Department of Health and Human Services and the Department of Public Instruction. The program shall include:

. . . (5) Evaluation of child progress through a statewide evaluation, as well as ongoing assessment of the children by teachers.

. . . (8) A quality-control system. Participating providers shall comply with standards and guidelines as established by the Department of Health and Human Services and the Department of Public Instruction. The Department may use the child care rating system to assist in determining program participation.

. . . (11) A system of accountability.

N.C. Session Laws 2007-323, § 7.24(c):  The Department of Public Instruction shall submit a report by February 1, 2008, to the Joint Legislative Commission on Governmental Operations, the Joint Legislative Education Oversight Committee, the Senate Appropriations Committee on Education, the House of Representatives Appropriations Subcommittee on Education, and the Fiscal Research Division. This final report shall include the following:

(1) The number of children participating in the program.

(2) The number of children participating in the program who have never been served in other early education programs, such as child care, public or private preschool, Head Start, Early Head Start, or early intervention programs.

(3) The expected expenditures for the programs and the source of the local match for each grantee.

(4) The location of program sites and the corresponding number of children participating in the program at each site.

(5) A comprehensive cost analysis of the program, including the cost per child served by the program.

(6) The status of the NC Prekindergarten initiatives as outlined in this section.

Guidelines § 5.D.  Instructional Components and Standards.

Instructional Assessment.  Ongoing assessment for instructional purposes is an integral part of high quality programs and is required for More at Four children.  Such assessments provide feedback about instruction and evidence of child growth and skill development.  Both formal and informal assessments can achieve this goal.  The following instruments are recommended.

Recommended assessment instruments:

• High Scope Child Observation Record (COR) (second edition)
• Work Sampling System (Meisels)
• Creative Curriculum Assessment Tool
• Galileo On-line Assessment System
• Learning Accomplishment Profile - Third Edition (LAP-3)

Training in appropriate use of screening and assessment instruments for instructional planning should be part of initial staff development for all teaching staff who have not previously completed appropriate training on these instruments.       

Guidelines § 7.C.  Program and Fiscal Monitoring of Local More at Four Pre-K Programs. 

The More at Four State Program, local contractors, and site administrators are required to monitor for compliance with the More at Four program and fiscal and contract guidelines and requirements. The monitoring process includes reviewing the child eligibility process, confirming that developmental screens and health assessments are completed, and checking other requirements as described to ensure that the guidelines are met.

1. Monitoring Tools: Monitoring tools developed by the More at Four State Program should be used at the local level for self-review and verification of compliance with the operating regulations and standards.

a. More at Four Site Monitoring Tool (Site Tool), completed by the local site administrator (or designee), is designed to provide checklists of those components of the program that must be reviewed for compliance annually at the site and classroom level.

b. More at Four Contractor Monitoring Tool (Contractor Tool), completed by the local contractor (or designee), is designed to provide checklists of those components of the program (both programmatic and fiscal) that must be reviewed for compliance annually at the local contractor level.

c. Contractor and Site tools are organized by a specific program or fiscal guideline, lists of specific documentation required to support a cited guideline/standard (source column), and “Yes, No, N/A, and Plan” columns for self-monitoring. Supporting documentation, listed under the “source column,” should be available for review by More at Four State Program personnel during monitoring visits. (To download Tools see http://www.osr.nc.gov/MoreFour/forms.asp)

2. On-Site Visits: Regular visits by More at Four State Program personnel will be made to programs to ensure standards and documentation are in place with the program and fiscal regulations and standards, as well as, to offer technical assistance to improve program quality.

3. Child and Program On-line Systems: Reporting and monitoring information may be obtained through the More at Four County Plan (MAFPLAN) and the More at Four Reporting System (MAFKids). These systems include extensive information about children, staff, and programs. Child information will include the necessary information required to support the State’s Maintenance of Effort (MOE) for Temporary Assistance to Needy Families (TANF).