Tennessee law requires special education pre-kindergartens, but state funding falls short
Tennessee school districts are shouldering the cost of special education pre-kindergarten programs for children as young as three. Many districts are redirecting hundreds of thousands of dollars from their K-12 budgets to meet the needs of students with disabilities, while receiving limited federal funding and no recurring state support. According to a February 2025 analysis reported by Chalkbeat, more than 9,900 pre-K students in Tennessee require special education services.
Federal law requires services, state formula does not
Schools are legally required to provide specialized therapies, additional teachers, and other supports to pre-K students with developmental delays or disabilities. However, Tennessee’s Tennessee Investment in Student Achievement (TISA) Act formula, adopted in 2022, does not include pre-K students in funding calculations. State funding only begins when students enter kindergarten, leaving districts to cover costs for younger children.
High costs for specialised classrooms
Operating special education preschool classrooms can cost districts hundreds of thousands of dollars annually. In Germantown, the program costs over $800,000 per year, but receives only around $23,000 in state grants. Each classroom typically requires a dually certified teacher, two paraprofessionals, therapists, and sometimes a nurse, with annual costs ranging from $143,000 to more than $200,000 per classroom. Lakeland School System supports four classrooms for 34 special education pre-K students, along with 25 general education peers, with annual expenses exceeding $617,000, funded largely from other programs supported by TISA, reports Chalkbeat.
Legislative efforts and funding challenges
Efforts to amend the TISA formula to include special education pre-K students have stalled in the General Assembly. Estimates from the legislature suggested that fully funding the program could cost the state over $159 million annually, though district leaders argue the actual figure is likely lower. Advocates stress that districts need recurring state funding rather than one-time grants to sustain programs.
Confusion between voluntary and special education Pre-K
State-level misunderstandings have slowed progress on funding. Voluntary pre-K programs, which serve at-risk students based on income, receive $85 million in state funding. Special education pre-K programs, however, serve children aged 3-5 with developmental delays or disabilities and are legally required, not optional. Many districts, including Germantown and Lakeland, do not operate voluntary pre-K programs, yet still must fund special education classes.
Advocates push for sustainable solutions
District leaders continue to meet with legislators and the governor’s finance team to advocate for inclusion of special education pre-K students in the state funding formula. Frustration remains over prioritizing private school voucher programs while required special education programs remain underfunded, reports Chalkbeat.
