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Americans have been debating the wisdom of free college for decades, and more than 20 states now offer some type of free college program. But it wasn't until 2021 that a nationwide free college program came close to becoming reality, re-energizing a longstanding debate over whether or not free college is a good idea.
And despite a setback for the free-college advocates, the idea is still in play. The Biden administration's proposal for free community college was scrapped from the American Families Plan in October as the spending bill was being negotiated with Congress.12
But close observers say that similar proposals promoting free community college have drawn solid bipartisan support in the past. "Community colleges are one of the relatively few areas where there's support from both Republicans and Democrats," said Tulane economics professor Douglas N. Harris, who has previously consulted with the Biden administration on free college, in an interview with The Balance.
To get a sense of the various arguments for and against free college, as well as the potential impacts on U.S. students and taxpayers, The Balance combed through studies investigating the design and implementation of publicly funded free tuition programs and spoke with several higher education policy experts. Here's what we learned about the current debate over free college in the U.S.—and more about how you can cut your college costs or even get free tuition through existing programs.
Key Takeaways
- Research shows that free tuition programs encourage more students to attend college and increase graduation rates, which creates a better-educated workforce and higher-earning consumers who can help boost the economy.
- Some programs are criticized for not paying students’ non-tuition expenses, for not benefiting students who need assistance most, or for steering students toward community college instead of four-year programs.
- If you want to find out about free programs in your area, the University of Pennsylvania Graduate School of Education has a searchable database. You’ll find the link further down in this article.
Types of Publicly Funded College Tuition Programs
Before diving into the weeds of the free college debate, it's important to note that not all free college programs are alike. Most publicly funded tuition assistance programs are restricted to the first two years of study, typically at community colleges. Free college programs also vary widely in the ways they’re designed, funded, and structured:
- Last-dollar tuition-free programs: These programs cover any remaining tuition after a student has used up other financial aid, such as Pell Grants. Most state-run free college programs fall into this category. However, these programs don’t typically help with room and board or other expenses.
- First-dollar tuition-free programs: These programs pay for students' tuition upfront, although they’re much rarer than last-dollar programs. Any remaining financial aid that a student receives can then be applied to other expenses, such as books and fees. The California College Promise Grant is a first-dollar program because it waives enrollment fees for eligible students.3
- Debt-free programs: These programs pay for all of a student's college expenses, including room and board, guaranteeing that they can graduate debt-free. But they’re also much less common, likely due to their expense.
Pros: Why College Should Be Free
Proponents often argue that publicly funded college tuition programs eventually pay for themselves, in part by giving students the tools they need to find better jobs and earn higher incomes than they would with a high school education. The anticipated economic impact, they suggest, should help ease concerns about the costs of public financing education. Here’s a closer look at the arguments for free college programs.
A More Educated Workforce Benefits the Economy
Morley Winograd, President of the Campaign for Free College Tuition, points to the economic and tax benefits that result from the higher wages of college grads. "For government, it means more revenue," said Winograd in an interview with The Balance—the more a person earns, the more they will likely pay in taxes. In addition, "the country's economy gets better because the more skilled the workforce this country has, the better [it’s] able to compete globally." Similarly, local economies benefit from a more highly educated, better-paid workforce because higher earners have more to spend. "That's how the economy grows," Winograd explained, “by increasing disposable income."
According to Harris, the return on a government’s investment in free college can be substantial. "The additional finding of our analysis was that these things seem to consistently pass a cost-benefit analysis," he said. "The benefits seem to be at least double the cost in the long run when we look at the increased college attainment and the earnings that go along with that, relative to the cost and the additional funding and resources that go into them."
Free College Programs Encourage More Students to Attend
Convincing students from underprivileged backgrounds to take a chance on college can be a challenge, particularly when students are worried about overextending themselves financially. But free college programs tend to have more success in persuading students to consider going, said Winograd, in part because they address students' fears that they can't afford higher education. "People who wouldn't otherwise think that they could go to college, or who think the reason they can't is because it's too expensive, [will] stop, pay attention, listen, decide it's an opportunity they want to take advantage of and enroll," he said.
According to Harris, students also appear to like the certainty and simplicity of the free college message. "They didn't want to have to worry that next year they were not going to have enough money to pay their tuition bill," he said. "They don't know what their finances are going to look like a few months down the road, let alone next year, and it takes a while to get a degree. So that matters."
Free college programs can also help send "a clear and tangible message" to students and their families that a college education is attainable for them, said Michelle Dimino, an Education Senior Policy Advisor with Third Way. This kind of messaging is especially important to first-generation and low-income students, she said.
Free College Increases Graduation Rates and Financial Security
Free tuition programs appear to improve students’ chances of completing college. For example, Harris noted that his research found a meaningful link between free college tuition and higher graduation rates. "What we found is that it did increase college graduation at the two-year college level, so more students graduated than otherwise would have."
Free college tuition programs also give people a better shot at living a richer, more comfortable life, say advocates. "It's almost an economic necessity to have some college education," noted Winograd. Similar to the way a high school diploma was viewed as crucial in the 20th century, employees are now learning that they need at least two years of college to compete in a global, information-driven economy. "Free community college is a way of making that happen quickly, effectively and essentially," he explained.
Cons: Why College Should Not Be Free
Free community college isn’t a universally popular idea. While many critics point to the potential costs of funding such programs, others identify issues with the effectiveness and fairness of current attempts to cover students’ college tuition. Here’s a closer look at the concerns about free college programs.
It Would Be Too Expensive
The idea of free community college has come under particular fire from critics who worry about the cost of social spending. Since community colleges aren't nearly as expensive as four-year colleges—often costing thousands of dollars a year—critics argue that individuals can often cover their costs using other forms of financial aid. But, they point out, community college costs would quickly add up when paid for in bulk through a free college program: Biden’s proposed free college plan would have cost $49.6 billion in its first year, according to an analysis from Georgetown University Center on Education and the Workforce.4 Some opponents argue that the funds could be put to better use in other ways, particularly by helping students complete their degrees.
Free College Isn't Really Free
One of the most consistent concerns that people have voiced about free college programs is that they don’t go far enough. Even if a program offers free tuition, students will need to find a way to pay for other college-related expenses, such as books, room and board, transportation, high-speed internet, and, potentially, child care. "Messaging is such a key part of this," said Dimino. Students "may apply or enroll in college, understanding it's going to be free, but then face other unexpected charges along the way."
It's important for policymakers to consider these factors when designing future free college programs. Otherwise, Dimino and other observers fear that students could potentially wind up worse off if they enroll and invest in attending college and then are forced to drop out due to financial pressures.
Free College Programs Don’t Help the Students Who Need Them Most
Critics point out that many free college programs are limited by a variety of quirks and restrictions, which can unintentionally shut out deserving students or reward wealthier ones. Most state-funded free college programs are last-dollar programs, which don’t kick in until students have applied financial aid to their tuition. That means these programs offer less support to low-income students who qualify for need-based aid—and more support for higher-income students who don’t.56
Community College May Not Be the Best Path for All Students
Some critics also worry that all students will be encouraged to attend community college when some would have been better off at a four-year institution. Four-year colleges tend to have more resources than community colleges and so can offer more support to high-need students.
In addition, some research has shown that students at community colleges are less likely to be academically successful than students at four-year colleges, said Dimino. "Statistically, the data show that there are poorer outcomes for students at community colleges […] such as lower graduation rates and sometimes low transfer rates from two- to four-year schools."
What the Free College Debate Means for Students
With Congress focused on other priorities, a nationwide free college program is unlikely to happen anytime soon. However, some states and municipalities offer free tuition programs, so students may be able to access some form of free college, depending on where they live. A good resource is the University of Pennsylvania Graduate School of Education’s searchable database of Promise Programs, which lists more than 120 free community college programs, though the majority are limited to California residents.
In the meantime, school leaders and policymakers may shift their focus to other access and equity interventions for low-income students. For example, higher education experts Eileen Strempel and Stephen Handel published a book in 2021 titled "Beyond Free College: Making Higher Education Work for 21st Century Students." The book argues in part that policymakers should focus more strongly on college completion, not just college access. "There hasn't been enough laser-focus on how we actually get people to complete their degrees," noted Strempel in an interview with The Balance.
Rather than just improving access for low-income college students, Strempel and Handel argue that decision-makers should instead look more closely at the social and economic issues that affect students, such as food and housing insecurity, child care, transportation, and personal technology. For example, "If you don't have a computer, you don't have access to your education anymore," said Strempel. "It's like today's pencil."
How To Cut Your College Costs Now
Saving money on college costs can be challenging, but you can take steps to reduce your cost of living. For example, if you're interested in a college but haven't yet enrolled, pay close attention to where it's located and how much residents typically pay for major expenses, such as housing, utilities, and food. If the college is located in a high-cost area, it could be tough to justify the living expenses you'll incur. Similarly, if you plan to commute, take the time to check gas or public transportation prices and calculate how much you'll likely have to spend per month to go to and from campus several times a week.
Now that more colleges offer classes online, it may also be worth looking at lower-cost programs in areas that are farther from where you live, particularly if they allow you to graduate without setting foot on campus. Also check out state and federal financial aid programs that can help you slim down your expenses, or, in some cases, pay for them completely. Finally, look into need-based and merit-based grants and scholarships that can help you cover even more of your expenses. Also consider applying to no-loan colleges, which promise to help students graduate without going into debt.
Frequently Asked Questions (FAQs)
Should community college be free?
It’s a big question with varying viewpoints. Supporters of free community college cite the economic contributions of a more educated workforce and the individual benefit of financial security, while critics caution against the potential expense and the inefficiency of last-dollar free college programs.
What states offer free college?
More than 20 states offer some type of tuition-free college program, including Arkansas, California, Connecticut, Delaware, Hawaii, Indiana, Kentucky, Louisiana, Maryland, Massachusetts, Michigan, Missouri, Montana, Michigan, Nevada, New York, Oklahoma, Oregon, Rhode Island, Tennessee, Virginia, and Washington State. The University of Pennsylvania Graduate School of Education lists 115 last-dollar community college programs and 16 first-dollar community college programs, though the majority are limited to California residents.7
Is there a free college?
There is no such thing as a truly free college education. But some colleges offer free tuition programs for students, and more than 20 states offer some type of tuition-free college program. In addition, students may also want to check out employer-based programs. A number of big employers now offer to pay for their employees' college tuition. Finally, some students may qualify for enough financial aid or scholarships to cover most of their college costs.
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