Georgia, the first state to offer universal voluntary pre-kindergarten, has now fallen behind other states in educational programs for 4-year-olds, according to a report to be issued today.

"While it remains highly regarded, Georgia pre-k no longer leads in the nation in any vital area: enrollment, high-quality standards, or per-child expenditures," states the report, "Time to Lead Again: The Promise of Georgia Pre-K," prepared by the Southern Education Foundation in Atlanta, a nonpartisan nonprofit organization formed in 1937 to promote fairness and quality in education in the South.

Education news • 2008 SAT School-by-school scores • 2008 CRCT School-by-school scores • List: Percentage of students promoted despite failing CRCT State says it will stop limiting number of charter schools  At Henry school forum, Clayton's woes loom large  State discusses how many charter school applications to allow  DeKalb, Cobb teachers win 'Oscars' of education  • Reader back-to-school photos   • More about schools   • AJC School Guide

"The take-home message is that Georgia pre-k is not universal. It's a promise to Georgia that has not been fulfilled," said foundation Vice President Steve Suitts, author of the study.

Mary Mazarky, assistant commissioner for pre-k at Bright from the Start (BftS): Georgia Department of Early Care and Learning, the state agency that oversees pre-k, said part of Georgia's challenge is dealing with the influx of new residents to the state.

"The public schools recognize the benefits of front loading and starting education early, but they are often strapped for space," Mazarky said.

But BftS said it believes it will be able to deliver universal pre-k.

"Under our new commissioner [Dr. Holly Robinson], we are already moving to fulfill the promise of pre-k as Dr. Suitts mentions in the conclusion of the report," said Todd Blandin, BftS public relations director.

Currently, 65 percent of the state's 4-year-olds are in publicly funded pre-k programs, with 58 percent supported by the state and 7 percent supported by the federal program Head Start. This fall, Georgia pre-k will serve 79,000 students.

Amy Clement, mother of a 4-year-old and 20-month-old, spent a night in April sleeping in a chair on a public sidewalk, camped out with dozens of other parents hoping to gain one of 20 slots in the Mary Lin Elementary School's pre-k program.

If she weren't able to secure a place for her son, Clement said she was planning to enroll him in a private program that would cost about $400 per month, or $4,000 a school year.

Georgia's per child expenditure in 2007 was $4,010, which ranks 22nd against 38 other state-funded pre-k programs, the report said.

BftS disputes the per child amount, estimating it at $4,165 during the most recent school year, Mazarky said.

Per child expenditures in other states range from $10,494 (New Jersey) to $2,335 (Florida).

Mazarky said that it's difficult to make direct comparisons between Georgia and other states since not all states offer universal or full-day programs. "You have to make sure you're comparing apples to apples."

The SEF report highlights disparities in pre-k access. Eight of 10 metro Atlanta counties have enrollment below the state average. Large population growths in these counties contribute to the difficulty in providing pre-k, Suitts said.

Rural South Georgia counties have the highest enrollment rates. More public schools offer pre-k there, he said.

Mazarky said the state is looking to increase capacity in areas of high growth, focusing its efforts based on an area's population of 4-year-olds, number of parents on waiting lists, and local high school graduation rates.

Not all pre-k programs are in public schools. The state pays some private schools to run tuition-free programs. BftS is seeking to increase the number of private pre-k providers; in addition, three new public schools recently were brought into the pre-k system.

The SEF proposes that the state use lottery reserve funds to increase the enrollment and quality of Georgia's pre-k program and also start a pilot program for 3-year-olds.

Obtaining more money through lottery reserve funds, which are used only for pre-k and the HOPE Scholarship, would require recommendation from the governor, followed by approval from the state Legislature, Blandin said.

The program is voluntary and not all parents choose to enroll their children in pre-k.

"I had children because I wanted to enjoy them. The idea of sending them off to preschool didn't appeal to me," said Mandi Bell, a DeKalb County mother of 7-year old twins and a 5-year old.

Studies of pre-k students, particularly those from low-income backgrounds, suggest long-term economic returns, the report stated.

"Children learn how to solve problems and get along socially. These skills are just as important for school success as learning letters," said Diane Bales, associate professor and human development specialist at the University of Georgia.

State Sen. Dan Weber called pre-k money a good investment.

"What it comes down to is how it competes with other items in the state budget each year," said Weber, a member of the committee on education and youth. "The pressing need is in urban neighborhoods where kids are in economically disadvantaged situations and where pre-k would be advantageous," Weber said.

The SEF report did mark an increase in the percentage of low-income students served by the program — from 40 percent in 2002 to 55 percent in 2007.

Keeping the program universal helps low-income students partly through peer-learning.

"Children are less marginalized if the program is available to everybody. That does a lot to change their attitudes about each other," Bales said.