CHAPEL HILL - Sweeping social change isn't just on the national agenda. Some local leaders have proposed a universal program here in Orange County.

But it's not health care they hope to tackle; it's education.

The Orange County Child Care Coalition has been talking to the Orange County Board of Commissioners about a proposal for universal pre-kindergarten for all children in the county, not just those from low-income families.

But the county, looking at a $5.7 million shortfall next fiscal year, has low-income issues of its own, and commissioners recently declined to study the proposal this year.

"I think the implication when you set up a task force for a program is that you will actually implement it," said Bernadette Pelissier, the vice chairwoman of the board of commissioners. "There were questions raised, but even if they were answered, we would not even consider implementing it because of the cost."

The proposal calls for creating the Orange County Universal Pre-Kindergarten Program (OC-UPP) to ensure 70 percent of all 4-year-olds in the county are in a pre-kindergarten program by June 13, 2013. The proposal estimates it would cost the county $10.8 million over the first five years, and $4.45 million per year thereafter.

"There's definitely a need and a precedent for adding more pre-kindergarten," said Commissioner Pam Hemminger, who compared it to the days kindergarten was not yet part of the curriculum. But the county already participates in Head Start and More at Four, she said, and "as it stands now, that's about all we can do for now."

Proponents argue that Head Start and More at Four are limited. Eligibility guidelines for Head Start exclude many low-income families, and More at Four funds are insufficient to cover every eligible child.

Ensuring early education for all students would help close the achievement gap, they say, citing The Chicago Longitudinal Study, which found children who attended pre-kindergarten were 29 percent more likely to graduate from high school and 41 percent less likely to require special education services than children who did not have pre-kindergarten.

"It's a nice concept, but we just don't have the money for it, and we need to focus our resources on those at-risk kids," said Nancy Coston, the county's director of social services.

Coston noted that there are already 250 children waiting for the federal pre-kindergarten programs available now. She said that it would cost over $1 million to clear that waiting list.

"To me, that has to be our first priority," she said, arguing that pre-kindergarten is one of the most critical times for at-risk children and that limited resources should be funneled appropriately. "We can't support everything for everyone."

Commissioners questioned whether the program needed to be expanded for all children or focus on those most at risk. They also questioned some of the logistics, such as before- or after-school care for the children of working parents. The proposal calls for parents to pay for this care, which could strain families already struggling with low incomes.

Commissioners also encouraged the coalition to work with the schools, many of which offer pre-kindergarten programs.

"I think the groups in the community can study the issue, and we encourage them to do that," Pelissier said.

Coalition member Kate Sanford said the group will study the issue and hopes to bring it before the commissioners again in the fall.

"Once we can see what 2010 is going to bring in terms of economic viability for Orange County, we can see what can move forward," she said. "I think it gives us an opportunity to make clear how it will be possible."

In the meantime, Sanford said the group will focus on building public awareness and support for the proposal, which she hopes can begin being implemented in the fall of 2011.

"The county commissioners know that this is a subject that has not been put to rest," she said.