Gov. Neil Abercrombie’s early-childhood education initiative survived the scrutiny of the state House Finance Committee on Tuesday, but many lawmakers still have fundamental questions about a program that could eventually cost the state more than $125 million a year.

The committee advanced a bill that would establish a school readiness program in the 2014-2015 school year for about 3,500 4-year-olds who would have been eligible for junior kindergarten, which is ending at public schools. The committee also agreed to put a constitutional amendment on the ballot in 2014 asking voters whether public money could be used for private preschool. If the constitutional amendment is approved, the state would embark on an early-childhood education program that could expand over a decade to serve all of the state’s 18,000 4-year-olds.

The initial cost would be about $25 million a year to subsidize low- and middle-income children, but if the preschool program expands, it could cost the state more than $125 million a year.

Abercrombie has personally testified for his early-education initiative as it moves through the Legislature, along with many of his Cabinet directors as well as education, business and law enforcement leaders who are concerned that Hawaii has fallen behind the 39 states that have invested in preschool. President Barack Obama has also made early-childhood education a priority, suggesting that federal money may be available to states that support preschool.

But many lawmakers, particularly in the House, are troubled by the potential cost and scope of the initiative, even if some have been reluctant to speak publicly against an idea as wholesome as preschool. The House Finance Committee had declined to hear the House versions of the early-education bills earlier this session and did not put any money aside in the House’s draft of the two-year budget. The Senate’s draft of the budget contains about $25 million for preschool.

Rep. Sylvia Luke (D, Punchbowl-Pauoa-Nuuanu), chairwoman of the House Finance Committee, agreed Tuesday to move the early-education bills to conference committee with the Senate later this month. But Luke blistered Terry Lock, director of the governor’s Executive Office on Early Learning, over the Abercrombie administration’s occasionally vague and evolving answers to questions about the initiative.

"It almost seems like you’re just kind of making things (up) as you go," a frustrated Luke said.

Under questioning from Luke and other lawmakers, Lock acknowledged that the state would not be able to track the educational progress of the 3,500 4-year-olds in the school readiness program because of the constitutional prohibition against using public money for private preschool. Lock said preschools chosen for the program would have to follow standards that would be higher than the state now requires for child care providers, but the school readiness program would technically be a child care, not an educational, initiative because of the legal constraint.

The school readiness program would establish the structure for a high-quality early-education program that would be created if the constitutional amendment is approved by voters.

Lock also acknowledged there is no plan to provide transportation for preschool students, a potential barrier for parents who live in rural areas or who have jobs with long commutes.

"We just want to know what the plan is. We just want to know what you guys are asking for and then how we’re going to fund it," Luke said. "Don’t give the impression that you’re continuing to change your plan, or you’re still looking at different issues or things that are out there, because it’s kind of late."

Abercrombie told Luke that his administration would address her concerns via conference committee. The governor, responding to lawmakers who called the school readiness program a child care or "glorified Head Start program," insisted that it was a "distinction without a difference."

"We’re trying to be respectful of the legal requirements; that’s really what this is," he said. "We’re not trying to be tricky or cute with the implementation. We’re trying to be respectful of what is allowed us legally given the constitutional prohibition on funding the private educational side of things but at the same time recognize that we have a very real need here for the children."

Abercrombie said the school readiness program could function as a pilot to test what works before any expansion. The governor repeatedly asked lawmakers to dwell not on the logistics of implementing early education, but on whether the state should move toward a preschool program. "That’s why I think it’s important for us to make a fundamental decision: Do we want to have an investment in our children or not?" he said.

The House Finance Committee agreed to add amendments to the early-education bills that would help ensure that preschools with a Native Hawaiian language focus could participate.

A more complicated issue, however, could be how to accommodate faith-based preschools. The Executive Office on Early Learning has indicated that guidelines for faith-based preschools could include restrictions against proselytizing, the display of religious symbols and discrimination in hiring.

"This is just not a good idea, all the way around, for the religious school community," said James Hochberg, an attorney who represents the nonprofit group Hawaii Family Advocates.