Federal Investment in Early Learning and Child Care Includes Multiple Programs that Either Require or Permit Use of Funds for Such Services

		Multiple Programs May Provide or Support Early Learning or Child Care

Multiple federal programs may provide or support early learning or child  care for children age 5 and under. In addition to these  federally funded programs, we identified three federal tax expenditures  that forgo tax revenue to subsidize the private purchase of child care and  adult dependent care services. The Federal Government Obligated $15 Billion in Fiscal Year 2015 for Programs with an Explicit Early Learning or Child Care Purpose, and Other Programs Also Permit Using Funds for These Purposes

Agencies obligated approximately $15 billion in fiscal year 2015, the most  recent obligations data available at the time we conducted our review,  across the nine programs with an explicit early learning or child care  purpose. The vast majority of this funding is concentrated in two  programs administered by HHS: Head Start and CCDF. Improved Agency Coordination has Helped Address Fragmentation, Overlap, and Potential Duplication

		Some Early Learning and Child Care Programs are Still Fragmented, Overlap, or Have Potential for Duplication

As we found in 2012, some fragmentation, overlap, and potential  duplication exist among early learning and child care programs. Fragmentation

The federal investment in early learning and child care is fragmented in  that it is administered through multiple agencies. Despite some similarities in target populations and activities, programs  with an explicit early learning or child care purpose often have different  goals and administrative structures. Duplication

There may be potential for duplication among early learning and child  care programs insofar as some programs may fund similar types of  services for similar populations. However, as we noted in our 2012  review, the extent to which actual duplication exists is difficult to assess at  the federal level due to differing program eligibility requirements and data  limitations. As we previously reported, effective coordination can help mitigate the  effects of program fragmentation and overlap and potentially help bridge  service gaps. Based upon our analysis, the Early Learning Interagency Policy Board— HHS and Education’s inter-departmental workgroup that focuses on  children from birth through age 8—has followed leading practices for  interagency collaboration that we have identified, such as defining  outcomes, tracking progress toward goals, and including relevant  participants across agencies, among others (see table 4). For example,  in response to needed actions we identified in 2012, HHS and Education  expanded membership of this group to include other agencies with early  learning and child care programs. The agencies use various combinations of three approaches:  performance monitoring, conducting program evaluations or studies, and  reviewing other performance information (see fig. For example:
Children age 5 and under: Eight of the nine programs assess results  regarding this age group. Although many of the programs with an explicit early learning or child  care purpose assess common aspects of performance, the specific  results agencies examine differ for a number of reasons. Interior did not have comments on our  report. In its written comments, HHS agreed with our findings and noted that  children and families benefit most from investments in federal early  learning and child care programs when they are coordinated with similar  programs and activities. Appendix I: Objectives, Scope, and Methodology

The objectives of this review were to examine: (1) what is known about  the federal investment in early learning and child care programs; (2) the  extent to which early learning and child care programs are fragmented,  overlap, or are duplicative, and the efforts agencies have made to  manage these conditions; and (3) the extent to which agencies assess  performance for programs with an explicit early learning or child care  purpose. In addition to agency responses to our questionnaires,  we obtained supplementary information from the Departments of  Education (Education), Health and Human Services (HHS), the Interior  (Interior), and other agencies. Appendix II: Update of Programs and Tax Expenditures that May Provide or Support Early Learning or Child Care

Appendix IV: Performance Information for Programs with an Explicit Early Learning or Child Care Purpose

	Department of Education: Performance Assessment of Programs with an Explicit Early Learning or Child Care Purpose

		Child Care Access Means Parents in School (CCAMPIS)

The Department of Education (Education) has two performance  measures for Child Care Access Means Parents in School program  (CCAMPIS), but has not set program-wide targets (see table 7).
Why GAO Did This Study

Millions of children age 5 and under participate each year in federally funded preschool and other early learning programs, or receive federally supported child care. Federal support for early learning and child care has evolved over time to meet emerging needs. In 2012, GAO reported that multiple federal agencies administer numerous early learning and child care programs. GAO was asked to re-examine federal programs that provide or support early learning and child care.
This report examines 1) the federal investment in early learning and child care programs; 2) fragmentation, overlap, and duplication among early learning and child care programs and agencies' efforts to address these conditions; and 3) the extent to which agencies assess performance for programs with an explicit early learning or child care purpose. GAO analyzed responses to questionnaires from nine agencies and one regional commission; reviewed budget and tax expenditure documentation, evaluations, annual program performance results, and other agency documentation; and interviewed officials from HHS, Education, and Interior.

What GAO Found

Multiple federal programs may provide or support early learning or child care for children age 5 and under. Of these programs, nine describe early learning or child care as an explicit purpose and are administered by the Departments of Health and Human Services (HHS), Education (Education), and the Interior (Interior). Fiscal year 2015 obligations for these nine programs totaled approximately $15 billion, with the vast majority of these funds concentrated in Head Start and the Child Care and Development Fund. An additional 35 programs did not have an explicit early learning or child care purpose, but permitted funds to be used for these services. Additionally, three tax expenditures subsidized individuals' private purchase of child or dependent care.
As GAO found in 2012, some early learning and child care programs are fragmented, overlap, or have potential for duplication. Specifically:
Fragmentation. The federal investment in early learning and child care is fragmented in that it is administered through multiple agencies.
Overlap. Some programs with an explicit early learning or child care purpose overlap, given that they target similar beneficiaries, such as low-income children, or engage in similar activities. However, these programs often have different goals and administrative structures.
Duplication. Some programs are potentially duplicative because they may fund similar types of services for similar populations. However, the extent to which actual duplication exists is difficult to assess due to differing program eligibility requirements and data limitations.
HHS and Education have helped address these conditions through improved agency coordination, particularly by following leading practices for interagency collaboration. For example, in response to needed actions GAO identified in 2012, HHS and Education expanded membership of their inter-departmental workgroup on young children to include other agencies with early learning and child care programs. The agencies have also documented their agreements, dedicated staff time to promote the goals and activities of this inter-departmental workgroup, and issued joint policy statements. The resulting improvement in coordination has helped mitigate the effects of fragmentation and overlap.
HHS, Education, and Interior use different methods to assess performance for the nine programs with an explicit early learning or child care purpose. These agencies collect performance information through various combinations of performance monitoring, program evaluations or studies, and other information, such as grantee-submitted reports. In addition, they collect performance information that aligns with program objectives, and many programs examine common aspects of performance. However, the specific results agencies assess differ for a number of reasons. For example, some programs assess children only while they receive services, while others assess later impacts on children.

What GAO Recommends

GAO makes no recommendations in this report. In its comments, HHS agreed with GAO's findings and noted that children benefit most from investments in federal early learning and child care programs when they are coordinated with similar programs. Education and HHS also provided technical comments, which GAO incorporated as appropriate.