Head Start lost more than $825 million over that time period, forcing some centers to close.
The GAO found that withholding the funds violated the Head Start Act and the Impoundment Control Act (ICA), which restricts the president's ability to rescind or delay funding that has already been appropriated by Congress.
"HHS has not provided the information we requested regarding factual information and its legal views concerning the potential impoundment of appropriated funds," said the GAO. "Yet publicly available evidence, including data recorded by HHS on its Tracking Accountability in Government Grants System, indicates that between January 20, 2025, and April 15, 2025, HHS withheld from disbursement funds appropriated for Head Start. Based on this evidence, we conclude that HHS violated the ICA."
The office added in its decision that "the Constitution grants the president no unilateral authority to withhold funds from obligation... If the administration wishes to make changes to the appropriation provided for Head Start, it must propose legislation for consideration by Congress."
Previously, the GAO has advised Congress that the Trump administration illegally withheld funds for an electric vehicle charging system and for the Institute of Museum and Library Services.
"Today's legal opinion from the nonpartisan GAO reaffirms a simple truth: The power of the purse belongs to Congress, not the president," said U.S. Rep. Brendan Boyle (D-Pa.), ranking member of the House Budget Committee. "By blocking these investments, the Trump administration broke the law and denied communities the funding they need to create jobs, grow their economies, and support working families."
"Instead of trying to destroy preschool programs and breaking our laws to hurt working families, President Trump needs to ensure every penny of these funds get out in a timely, consistent way moving forward."
The administration has proposed entirely eliminating Head Start, which provides education to more than 750,000 children. Earlier this month it announced that children who are undocumented immigrants will no longer be accepted into the program—prompting a lawsuit that was filed this week by 21 Democratic state attorneys general.
Sen. Patty Murray (D-Wash.), who serves as vice chair of the Senate Appropriations Committee, condemned President Donald Trump for "stealing money from preschool programs."
"No president in modern history has demonstrated such contempt for working and low-income American families as Donald Trump," said Murray, noting that a Head Start program in her state's Lower Yakima Valley was among those that had to temporarily close earlier this year, impacting more than 400 children and more than 70 staffers.
"Today, a top government watchdog confirmed what we've known for months: President Trump has illegally held up vast sums of funding for Head Start programs across America—blocking funding that working families count on every day for pre-K and so many critical services Head Start offers," said Murray.
"Trump has signaled he would like to eliminate Head Start—but that's not his choice to make," she added. "Congress delivered this funding for Head Start on a bipartisan basis, and instead of trying to destroy preschool programs and breaking our laws to hurt working families, President Trump needs to ensure every penny of these funds get out in a timely, consistent way moving forward—and he must also finally get out the rest of the investments he has been robbing the American people of."
