S 1832119th CongressIn Committee

College for All Act of 2025

Introduced: May 21, 2025

Economy & TaxesEducation

Standard Summary

Comprehensive overview in 1-2 paragraphs

The College for All Act of 2025 would remake federal higher education policy by creating a large, long-term federal–state partnership to eliminate tuition and required fees for eligible students at public colleges and two-year Tribal Colleges or Universities, as well as at eligible four-year public institutions in participating states. Beginning in the 2026-2027 award year, the bill would fund this effort with a per-student grant from the federal government and a gradually growing state share, with the federal share initially covering 100% and then stepping down to 80% over time while states pick up more of the cost. The approach is designed to ensure universal access to tuition-free higher education for qualifying students, with strict requirements on state maintenance of effort, program integrity, and supports intended to protect quality and access. In addition to the public-college funding, the bill would create targeted grant programs and improvements aimed at expanding access for historically Black colleges and universities (HBCUs), minority-serving institutions (MSIs), and Tribal colleges, including a separate grant program for eligible students at private nonprofit HBCUs/MSIs, improvements to Pell Grants, inclusive student-success grants, and accountability/transfer-policy obligations for states. It also includes provisions on transfers, alignment of secondary- and postsecondary education, and automatic funding stabilizers to cushion states during economic hardship or unemployment spikes. The bill is introduced and referred to the Senate Committee on Finance; as of now, it is in an early stage with many details to be debated.

Key Points

1Federal-state partnership to fully eliminate tuition and required fees for eligible students at public colleges, Tribal colleges/universities, and selected public 4-year institutions (Title I, Subpart 1).
2Federal grants to states and Tribal Colleges/Universities to implement tuition-free plans, starting award year 2026-2027 (Sec. 785).
3Federal share and state share structure:
4- Federal share begins at 100% in 2026-27 for most institutions, then declines to 95%, 90%, 85%, and 80% in subsequent years.
5- State share rises from 0% in 2026-27 to 5%, 10%, 15%, and 20% in 2030-31 and beyond.
6- Special rule for 100% coverage (or full elimination) for some Tribal Colleges/Universities; outlying territories may have adjusted shares to address hardship.
7Eligibility framework:
8- “Eligible student”: any individual who has not earned a baccalaureate degree, regardless of age or immigration status, but subject to residency- and FAFSA-related conditions for tuition elimination (in-State vs. out-of-state considerations, and immigration-status-related adjustments).
9- Tuition and fees must be fully eliminated for eligible students at community colleges and public 4-year institutions, with income-based eligibility thresholds and adjustments over time.
10State maintenance of effort (MOE) requirements:
11- States must maintain per-FTE instructional expenditures and need-based aid at levels tied to recent historical data (three most recent years).
12- States must demonstrate net revenue not falling for the cost of attendance when eliminating tuition/fees, and cannot count certain funds toward MOE.
13Program requirements for states and some institutions (787):
14- Ensure funding supports instruction per FTE, maintain elimination of tuition/fees, and meet eligibility criteria for dependent/independent students based on income.
15- Policies to avoid enrollment reductions, ensure in-state tuition policies, and maintain disability-services staffing ratios.
16- Align secondary education with community college entry requirements and ensure transfer pathways (including reverse transfer) and credit transferability.
17Technical and implementation provisions:
18- Transfer pathways and alignment plans due within specified timeframes; certification to the Secretary upon completion.
19- No additional eligibility barriers beyond those set in the subpart.
20- Automatic stabilizers to provide relief during elevated unemployment or other fiscal stress, with tiered waivers and adjustments to the federal/state-share structure.
21Other Title Provisions:
22- Title II: Grant program to eliminate tuition and fees for eligible students at private nonprofit HBCUs and MSIs.
23- Title II, Sec. 202: Support for college access in U.S. territories and Freely Associated States.
24- Title III: Federal Pell Grant improvements.
25- Title IV: Inclusive student-success grants.
26- Title V: Increasing support for low-income and first-generation students.
27- Title VI: Investments in HBCUs, Tribal Colleges, and MSIs.
28- Title VII: Snyder Act-related rule of construction (ensuring compatibility with existing rights/interpretations).
29Status: Introduced in the Senate (S. 1832) on May 21, 2025; referred to the Senate Committee on Finance.

Impact Areas

Primary group/area affected- Current and prospective students at public community colleges and public 4-year institutions in participating states (and qualifying tribal colleges), including working-class, low-income, and first-generation students; students regardless of age or immigration status for eligibility, subject to residency and FAFSA-related rules for tuition elimination.Secondary group/area affected- States and public higher-ed institutions (including 2-year and 4-year institutions) that would receive federal subpart grants and must meet maintenance-of-effort requirements; local governments contributing funds to community colleges; and tribal colleges/universities.- Historically Black colleges and universities, MSIs, and tribal colleges/universities through dedicated grant programs and enhanced funding.Additional impacts- Changes to need-based aid administration, in-state tuition policies, transfer and reverse-transfer policies, and alignment between high school graduation requirements and college-entry coursework.- Administrative requirements and reporting to ensure compliance with MOE, eligibility, and program integrity; potential long-term budget implications given the phased-down federal share and gradually increasing state share.- Territorial and territory-related adjustments to funding and eligibility to address hardship in outlying areas (e.g., Puerto Rico, Guam, American Samoa, etc.).- Potential impact on institutional tuition pricing, enrollment management, and long-range planning for higher education budgets.

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