Five-second answer

Claim we investigated

80 times in the last five years Olympia has moved money from dedicated accounts to the general fund.

Mostly true. Budgets enacted 2021-2026 list 81-83 such transfers, 72 excluding routine cannabis, tobacco and rainy-day flows. Two independent counts of the transfer sections of the enacted budgets agree on about 80 transfer lines into the general fund (81-83 in all, 72 excluding routine and rainy-day flows), and a Washington Research Council tally of the same budgets matches; one of the pamphlet's four examples is wrong.

Quote or cite this fact-check

FactHub rates the claim “80 times in the last five years Olympia has moved money from dedicated accounts to the general fund” Mostly true (moderate confidence): Budgets enacted 2021-2026 list 81-83 such transfers, 72 excluding routine cannabis, tobacco and rainy-day flows. Reviewed October 21, 2026. https://facthub.org/n/article/i645-fund-sweeps-early-learning/3

One-minute summary

What the evidence establishes

  • Established. The final transfer lists in Washington's operating budgets for 2021-23, 2023-25 and 2025-27 contain 81 transfers into the general fund (83 counting two 2019-21 lines enacted in 2021); a second, separate count found 82.
  • Established. Leaving out routine cannabis and tobacco-settlement flows and rainy-day-fund draws gives 72; also leaving out repayments of general-fund loans gives 67, from 62 distinct accounts.
  • Context. Most came in one budget: 53 of 81 are in the 2025-27 list, after the 2026 supplemental added 15 new source accounts.
  • Established. Three of the pamphlet's four examples are real transfers (health insurance accounts, pipeline safety, school employees' insurance); flood control is not, since money goes from the general fund to flood control.
  • Established. The 2025 budget delayed the ECEAP preschool entitlement to 2030-31 and child care eligibility expansion to 2029, repealed two eligibility expansions and cut ECEAP slots.
  • Not shown. That capital gains revenue was legally dedicated to early learning is not shown: the law sent it to the Education Legacy Trust Account, mostly used for K-12, with early learning in its statement of intent.
Important context: The Argument For Initiative 645 in the state Voters' Pamphlet, written by Sen. Chris Gildon (R) and five others, says lawmakers should keep their existing commitments before asking taxpayers for more. It claims Olympia moved money from dedicated accounts to the general fund 80 times in five years and that early-learning commitments tied to the capital gains tax were delayed, reduced or cancelled. The pamphlet gives no source. This check counts the transfers in the enacted operating budgets and checks the early-learning changes; it does not judge whether any transfer was good policy.

The evidence

The conclusion rests on the combined record. Expand each item to see its role and limitations.

Independence note: This check uses 4 methods across 4 institutions and 1 country or international grouping.
Evidence map
Method Institution / country Year(s) What it shows Key limitation Primary links
Count of every 'For transfer to the state general fund' line in the final transfer section for each biennium, from the session-law text with struck language removed; repeated independently by a second count. Washington State Legislature United States 2021, 2022, 2023, 2024, 2025, 2026 The final lists contain 8 transfers into the general fund for 2021-23, 20 for 2023-25 and 53 for 2025-27: 81 in all, or 83 counting two 2019-21 lines first enacted in 2021. Without routine cannabis and tobacco-settlement flows and rainy-day-fund draws, 72; without repayments of general-fund loans and the return of the general fund's own pandemic reserve, 67. They came from 62 distinct accounts. In the other direction, 30 lines moved $1.8 billion out of the general fund. Only operating-budget transfer sections are counted; transportation and capital budgets and fund swaps are not. A line is one printed entry, so the tobacco settlement counts twice a biennium. Categories such as routine and loan repayment are our classification. FactHub dataset: Washington operating-budget transfers into and out of the general fund FactHub dataset: Washington operating-budget transfers into and out of the general fund Washington State Legislature
Comparison with the Washington Research Council's review of 2025-27 transfers and the Legislature's 2026 budget notes. Washington Research Council, Washington Legislature fiscal committees (LEAP) United States 2026 For 2025-27 the Research Council counts net transfers into the near general fund of $2.292 billion, including $279.6 million from 44 accounts besides its five named large sources; our count of the same list also leaves 44 other accounts. It says that apart from the rainy-day fund, the transfers come from accounts dedicated for specific purposes. The Research Council counts transfers into all accounts subject to the budget outlook, not only the general fund, and reports dollars rather than lines; it is a business-funded group that has criticized transfers. Washington Research Council
Search of the final transfer lists for each account the pamphlet names. Washington State Legislature United States 2026 The 2026 supplemental moves $18.2 million from the Public Employees' and Retirees' Insurance Account and $15 million from the Apple Health and Homes Account, $1 million from the Pipeline Safety Account and $2.55 million from the School Employees' Insurance Account into the general fund. Earlier school-employee transfers repaid general-fund loans. No flood account sends money to the general fund; the general fund sends $1.85 million a year to the flood control assistance account. A flood-control fund swap outside the transfer sections would not appear here. FactHub dataset: Washington operating-budget transfers into and out of the general fund Washington State Legislature
The 2021 capital gains law, the statute governing the Education Legacy Trust Account, the 2025 final bill report and the Department of Children, Youth, and Families' summary of budget impacts. Washington State Legislature, Washington Department of Children, Youth, and Families United States 2021, 2025, 2026 The 2021 capital gains law said the Legislature would invest in early learning and child care by dedicating the revenue to the Education Legacy Trust Account, whose permitted uses include early learning. In 2025 ESSB 5752 delayed the ECEAP entitlement from 2026-27 to 2030-31 and the child care eligibility expansion from July 2025 to July 2029, and repealed eligibility expansions for child care employees and apprentices; DCYF reports Early ECEAP was eliminated and ECEAP slots reduced. The 2026 budget also counted $394.6 million more capital gains revenue for the operating budget by changing its distribution. The capital gains law expressed intent; it did not earmark revenue for early learning, and the expansions delayed in 2025 were set by the 2021 Fair Start for Kids Act, not by the capital gains law. A new preschool funding stream created later is not assessed here. Washington State Legislature Washington State Legislature Washington State Senate Washington Department of Children, Youth, and Families Washington State Legislature fiscal committees and LEAP
1. The enacted budgets list 81-83 transfers into the general fund since 2021 Count of every 'For transfer to the state general fund' line in the final transfer section for each biennium, from the session-law text with struck language removed; repeated independently by a second count.

The final lists contain 8 transfers into the general fund for 2021-23, 20 for 2023-25 and 53 for 2025-27: 81 in all, or 83 counting two 2019-21 lines first enacted in 2021. Without routine cannabis and tobacco-settlement flows and rainy-day-fund draws, 72; without repayments of general-fund loans and the return of the general fund's own pandemic reserve, 67. They came from 62 distinct accounts. In the other direction, 30 lines moved $1.8 billion out of the general fund.

Limit: Only operating-budget transfer sections are counted; transportation and capital budgets and fund swaps are not. A line is one printed entry, so the tobacco settlement counts twice a biennium. Categories such as routine and loan repayment are our classification.

Verify: Transfers into the general fund enacted 2021-2026 under different definitions Transfer lines into the general fund by biennium and kind ESSB 5998, 2026 supplemental operating budget (2026 c 268), sec. 802

80 times in the last five years Olympia has moved money from dedicated accounts to the general fund.

Committee for the argument for Initiative 645 (Sen. Chris Gildon and five co-authors), Authors of the official voters' pamphlet argument for I-645 2026 Washington voters' pamphlet, Initiative Measure IP26-645, p. 14, argument for: "A History of Broken Promises" · · Assertion

Context: Part of the official argument for Initiative 645 printed on page 14 of the 2026 Washington state voters' pamphlet, under the heading shown in this statement's table row. The statement was written by the committee appointed to write the argument for the measure.

Source: Washington Secretary of State, 2026 voters' pamphlet · View in the dataset

Budget transfers into Washington's general fundNumber of transfer lines moving money into Washington's general fund in the final operating-budget transfer section for each biennium, by kind of source account.{"width":960,"height":540,"plot":{"left":90,"top":70,"right":926,"bottom":482},"yDomain":[0,60],"series":[{"name":"Other dedicated accounts","color":"#176b87"},{"name":"Cannabis and tobacco settlement","color":"#b6542c"},{"name":"Rainy-day fund (BSA)","color":"#684b9b"}],"points":[{"series":0,"x":229.33,"y":447.67,"xLabel":"2021-23","yLabel":"5"},{"series":1,"x":229.33,"y":427.07,"xLabel":"2021-23","yLabel":"3"},{"series":2,"x":229.33,"y":427.07,"xLabel":"2021-23","yLabel":"0"},{"series":0,"x":508,"y":365.27,"xLabel":"2023-25","yLabel":"17"},{"series":1,"x":508,"y":344.67,"xLabel":"2023-25","yLabel":"3"},{"series":2,"x":508,"y":344.67,"xLabel":"2023-25","yLabel":"0"},{"series":0,"x":786.67,"y":145.53,"xLabel":"2025-27","yLabel":"49"},{"series":1,"x":786.67,"y":124.93,"xLabel":"2025-27","yLabel":"3"},{"series":2,"x":786.67,"y":118.07,"xLabel":"2025-27","yLabel":"1"}]}Budget transfers into Washington's general fund01020304050602021-232023-252025-27Biennium (final transfer list)Other dedicated accountsCannabis and tobacco settlementRainy-day fund (BSA)FactHub · Transfer lines into the general fund
Transfer lines into the general fund in each biennium's final list, by kind of source: 8, 20 and 53. Two 2019-21 lines enacted in 2021 bring the five-year total to 83. View source chart
2. The Research Council's tally of the same budgets matches, and calls the scale unusual Comparison with the Washington Research Council's review of 2025-27 transfers and the Legislature's 2026 budget notes.

For 2025-27 the Research Council counts net transfers into the near general fund of $2.292 billion, including $279.6 million from 44 accounts besides its five named large sources; our count of the same list also leaves 44 other accounts. It says that apart from the rainy-day fund, the transfers come from accounts dedicated for specific purposes.

Limit: The Research Council counts transfers into all accounts subject to the budget outlook, not only the general fund, and reports dollars rather than lines; it is a business-funded group that has criticized transfers.

Verify: Operating budgets in 2023-25 and 2025-27 rely on fund transfers to an extent not seen since the Great Recession (March 18, 2026)

3. Three of the pamphlet's four examples are real; flood control is not Search of the final transfer lists for each account the pamphlet names.

The 2026 supplemental moves $18.2 million from the Public Employees' and Retirees' Insurance Account and $15 million from the Apple Health and Homes Account, $1 million from the Pipeline Safety Account and $2.55 million from the School Employees' Insurance Account into the general fund. Earlier school-employee transfers repaid general-fund loans. No flood account sends money to the general fund; the general fund sends $1.85 million a year to the flood control assistance account.

Limit: A flood-control fund swap outside the transfer sections would not appear here.

Verify: The pamphlet's four named examples ESSB 5998, 2026 supplemental operating budget (2026 c 268), sec. 802

4. Early-learning expansions were delayed and cut back in 2025 The 2021 capital gains law, the statute governing the Education Legacy Trust Account, the 2025 final bill report and the Department of Children, Youth, and Families' summary of budget impacts.

The 2021 capital gains law said the Legislature would invest in early learning and child care by dedicating the revenue to the Education Legacy Trust Account, whose permitted uses include early learning. In 2025 ESSB 5752 delayed the ECEAP entitlement from 2026-27 to 2030-31 and the child care eligibility expansion from July 2025 to July 2029, and repealed eligibility expansions for child care employees and apprentices; DCYF reports Early ECEAP was eliminated and ECEAP slots reduced. The 2026 budget also counted $394.6 million more capital gains revenue for the operating budget by changing its distribution.

Limit: The capital gains law expressed intent; it did not earmark revenue for early learning, and the expansions delayed in 2025 were set by the 2021 Fair Start for Kids Act, not by the capital gains law. A new preschool funding stream created later is not assessed here.

Verify: ESSB 5096, capital gains tax (2021 c 196), sec. 1 RCW 83.100.230, Education legacy trust account Final bill report, ESSB 5752 (2025) 2025-27 state budget impacts: early learning 2026 Supplemental Legislative Budget Notes

The capital gains tax was promised to support early learning and childcare, yet those commitments were delayed, reduced, or cancelled.

Committee for the argument for Initiative 645 (Sen. Chris Gildon and five co-authors), Authors of the official voters' pamphlet argument for I-645 2026 Washington voters' pamphlet, Initiative Measure IP26-645, p. 14, argument for: "A History of Broken Promises" · · Assertion

Context: Part of the official argument for Initiative 645 printed on page 14 of the 2026 Washington state voters' pamphlet, under the heading shown in this statement's table row. The statement was written by the committee appointed to write the argument for the measure.

Source: Washington Secretary of State, 2026 voters' pamphlet · View in the dataset

Common questions

“Many of these transfers are routine flows or repayments, not raids.”

Short answer: Some are: 72 or 67 without them

True for some. Cannabis and tobacco-settlement flows come every biennium, rainy-day draws are what the fund is for, and a few lines repay general-fund loans or return the general fund's own pandemic reserve. Without the routine and rainy-day lines the count is 72; without the repayments too, 67. Even the narrowest count is in the high 60s, and 2025-27 alone has 49 transfers from other dedicated accounts.

“The capital gains tax was promised to support early learning and childcare, yet those commitments were delayed, reduced, or cancelled.”

Our rating: Mostly true

The delays, reductions and cancellations are documented: the ECEAP entitlement moved to 2030-31, the child care eligibility expansion to 2029, two eligibility expansions were repealed and Early ECEAP was eliminated. The promise is weaker than the sentence implies: the capital gains law named early learning in its statement of intent and sent the money to an account that may fund it, but it did not earmark any of it for early learning.

“The millionaires tax's revenue could be swept the same way.”

Short answer: Nothing to sweep

The law sends 95% of the tax to the general fund and 5% to child care from 2029, so most of it never sits in a dedicated account. The concern that does apply is that the law sets no reserve, spending cap or outcome reporting for the money.

Conclusion

The count holds up. The transfer sections of the operating budgets enacted from 2021 to 2026 contain 81 lines moving money into the general fund in the final lists for 2021-23, 2023-25 and 2025-27, and 83 counting two lines first enacted in 2021 for the 2019-21 biennium. A separate count of the same sections found 82. The Washington Research Council, which describes transfers from accounts other than the rainy-day fund as coming from accounts dedicated for specific purposes, reports transfers in 2023-25 and 2025-27 on a scale not seen since the Great Recession. So the pamphlet's number is about right on the most literal reading. It is Mostly true rather than True because the number depends on what counts. Three lines a biennium are routine flows from the dedicated cannabis account and the tobacco settlement, and two are draws on the rainy-day fund; without them the count is 72. A few more repay general-fund loans or return money the general fund had set aside itself; without those it is 67, from 62 distinct accounts. Most of the transfers came in one budget: 53 of the 81 are in the 2025-27 list after the 2026 supplemental added 15 new source accounts. Money also flowed the other way, 30 transfers totaling $1.8 billion out of the general fund. One of the four examples is wrong: no flood-control account sends money to the general fund; the general fund sends $1.85 million a year to flood control. Confidence is moderate because these definitional choices, not the counting, decide whether the figure is 67 or 83. The early-learning sentence is accurate on what happened and loose on the promise. The 2021 capital gains law said the Legislature would invest in K-12 education and early learning and child care by dedicating the revenue to the Education Legacy Trust Account, which may fund early learning. In 2025 the Legislature delayed the ECEAP preschool entitlement from 2026-27 to 2030-31 and the child care eligibility expansion from 2025 to 2029, repealed two eligibility expansions, eliminated Early ECEAP and cut ECEAP slots. But the capital gains money was never legally dedicated to early learning, so this is a broken statement of intent rather than a diverted earmark. For I-645, the point the pamphlet draws is about trust, which is a judgment for voters. One fact cuts against using sweeps as an argument here: the millionaires tax sends 95% of its revenue to the general fund already, so there is no dedicated account to sweep. The related fact that supports the concern is that the law sets no reserve, cap or reporting for that money.

How we checked

  1. Defined the claim as: Washington's operating budgets enacted in the five years before the 2026 election moved money from other (dedicated) accounts into the general fund about 80 times.
  2. Read the 'For the State Treasurer: Transfers' sections of the 2021, 2023, 2025 and 2026 operating budgets as enacted, removed struck text, and used the final list for each biennium.
  3. Counted every transfer into the general fund and out of it, classified each source, and reported the count under several definitions.
  4. Repeated the count independently and compared the two, and checked it against the Research Council's tally and the 2026 budget notes.
  5. Searched for each of the pamphlet's four named examples.
  6. Checked the early-learning claim against the 2021 capital gains law, the Education Legacy Trust Account statute, the 2025 bill report and DCYF's summary.
  7. Recorded limits: transfer sections only, definitional choices, and intent versus earmark.

Editorial note: Scope: transfers in the operating-budget transfer sections ('For the State Treasurer: Transfers') of budgets enacted 2021-2026. Transportation and capital budgets, stand-alone bills and fund swaps that move a program's cost onto a dedicated account are not counted, so the true number of shifts could be higher. This article was prepared alongside FactHub checks of claims from both I-645 campaigns, including the No side's pamphlet.

Expert-review status

No external specialist review has been recorded.

Funding and conflicts

Funding: No external funding for this piece.

Ownership: Published by the FactHub Research Team.

Conflicts: No conflicts of interest are known. FactHub takes no position on I-645.

Sources

Sources are labeled by kind, with what this fact check takes from each, so readers can check the evidence independently.

  1. FactHub record FactHub dataset: Washington operating-budget transfers into and out of the general fund. Transfers into the general fund enacted 2021-2026 under different definitions

    Saved analysis counting transfer lines under four definitions.

    • 83 transfer lines into the general fund enacted 2021-2026 (81 in the three final lists); 72 excluding routine and rainy-day flows; 67 also excluding loan repayments; 62 distinct accounts.

  2. FactHub record FactHub dataset: Washington operating-budget transfers into and out of the general fund. Transfer lines into the general fund by biennium and kind

    Saved analysis of transfer lines by biennium and kind of source.

    • Qualifies: 8 transfer lines in 2021-23, 20 in 2023-25 and 53 in 2025-27; three a biennium are cannabis and tobacco-settlement flows.

  3. FactHub record FactHub dataset: Washington operating-budget transfers into and out of the general fund. The pamphlet's four named examples

    Saved analysis checking each account the pamphlet names.

    • Qualifies: Health-care insurance accounts, pipeline safety and school employees' insurance appear as transfers into the general fund; flood control does not.

  4. Government Washington State Legislature. ESSB 5998, 2026 supplemental operating budget (2026 c 268), sec. 802

    Session law text of the 2026 supplemental budget, including the final 2025-27 transfer section.

    Reliability: Official session law published by the Legislature; amended sections show struck and inserted text.

    • The 2025-27 transfer list moves money from the Pipeline Safety Account into the general fund ($1 million in fiscal 2026).

      What the source says
      Pipeline Safety Account: For transfer to the state general fund
      Sec. 802, State Treasurer: Transfers

    • Contradicts: The only flood-control line moves general-fund money into the flood control assistance account, not out of it.

      What the source says
      General Fund: For transfer to the flood control
      Sec. 802, State Treasurer: Transfers
  5. Advocacy group Washington Research Council. Operating budgets in 2023-25 and 2025-27 rely on fund transfers to an extent not seen since the Great Recession (March 18, 2026)

    Research Council analysis of fund transfers in the 2025 and 2026 budgets.

    Reliability: Business-funded nonpartisan research group that has criticized reliance on transfers; it reports net dollars into all funds subject to the outlook.

    • Net transfers into the near general fund for 2025-27 total $2.292 billion.

      What the source says
      Combined with transfers enacted in 2025, net NGFO transfers for 2025–27 total $2.292 billion.
      Body text

    • Apart from the rainy-day fund, the transfers come from accounts dedicated to specific purposes.

      What the source says
      Aside from the use of rainy day funds, these transfers are made from accounts that are dedicated for specific purposes.
      Body text
  6. Government Washington State Legislature. ESSB 5096, capital gains tax (2021 c 196), sec. 1

    Session law creating the capital gains tax, including its statement of intent.

    Reliability: Official session law published by the Legislature.

    • Qualifies: The law said the Legislature would invest in early learning and child care by dedicating the revenue to the Education Legacy Trust Account and school construction.

      What the source says
      the legislature will invest in the ongoing support of K-12 education and early learning and child care by dedicating revenues from this act to the education legacy trust account and the common school construction account
      Sec. 1, intent
  7. Government Washington State Legislature. RCW 83.100.230, Education legacy trust account

    Statute setting the permitted uses of the Education Legacy Trust Account.

    Reliability: Current Revised Code of Washington text.

    • Qualifies: The account may fund the common schools, higher education, and early learning and child care.

      What the source says
      Expenditures from the account may be used only for support of the common schools, and for expanding access to higher education through funding for new enrollments and financial aid, early learning and child care programs
      RCW 83.100.230
  8. Government Washington State Senate. Final bill report, ESSB 5752 (2025)

    Senate staff summary of the 2025 bill changing early learning and child care entitlements.

    Reliability: Nonpartisan Senate committee staff summary of the enacted bill.

    • The ECEAP preschool entitlement was delayed four years.

      What the source says
      The ECEAP entitlement is delayed from the 2026-27 school year to the 2030-31 school year.
      Summary

    • Child care subsidy eligibility up to 75% of median income was delayed four years.

      What the source says
      The WCCC income eligibility expansion from 60 to 75 percent of SMI is delayed from July 1, 2025, to July 1, 2029.
      Summary

    • The eligibility expansion for child care employees was repealed.

      What the source says
      The eligibility expansion for child care employees is repealed.
      Summary
  9. Government Washington Department of Children, Youth, and Families. 2025-27 state budget impacts: early learning

    DCYF's summary of the enacted 2025-27 budget's effect on early learning programs.

    Reliability: The agency that runs the programs, describing the enacted budget.

    • Early ECEAP funding was eliminated.

      What the source says
      Funding for Early ECEAP was eliminated.
      ECEAP

    • The number of ECEAP slots was reduced.

      What the source says
      Reduction in the number of ECEAP slots.
      Budget items
  10. Government Washington State Legislature fiscal committees and LEAP. 2026 Supplemental Legislative Budget Notes

    Nonpartisan legislative staff summary of the 2026 supplemental budget.

    Reliability: Prepared by nonpartisan legislative fiscal staff from the enacted budget.

    • The 2026 budget counted $394.6 million more capital gains revenue for the operating budget by changing how it is distributed.

      What the source says
      an additional $394.6 million in NGF-O revenues for the operating budget due to an adjusted
      p. O-2
  11. FactHub dataset Washington operating-budget transfers into and out of the general fund, 2021-23 to 2025-27

    Tables: transfers, transfer-counts

    Analysis five-year-count

  12. FactHub dataset Initiative 645: the campaigns' claims in their own words
    • 80 times in the last five years Olympia has moved money from dedicated accounts to the general fund.
      Committee for the argument for Initiative 645 (Sen. Chris Gildon and five co-authors), Authors of the official voters' pamphlet argument for I-645, · In the dataset
    • The capital gains tax was promised to support early learning and childcare, yet those commitments were delayed, reduced, or cancelled.
      Committee for the argument for Initiative 645 (Sen. Chris Gildon and five co-authors), Authors of the official voters' pamphlet argument for I-645, · In the dataset
  13. FactHub chart wa-transfers-into-general-fund

Update history

  1. Version 2: disclosure updated; companion I-645 links to be added when that set is final.
  2. Version 3: the voters' pamphlet quotes now come from the campaign-statements dataset, and the early-learning sentence carries its own rating (Mostly true).
  3. Initial version.

Cited by

Version details

The exact citing versions, and the version of this article each cites.

  • Briefing wa-i-645 — version 6 (published) cites version 3
  • Briefing wa-i-645 — version 4 (published) cites version 3

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