Since 2005, free college programs, also known as promise programs, have expanded as a popular form of financial aid to address college affordability and access. Over the last several decades, these programs have proliferated, with more than 400 currently operating at the state and local levels.

This Brookings study draws on in‑depth interviews with 32 administrators at community colleges in California, Florida, Michigan, and New York. The authors recommend simplifying eligibility rules, expanding support for students’ non-tuition needs, and ensuring long-term funding and advising structures so free college initiatives deliver on their promise of increasing access and student success.