November 13, 2025
State and local leaders considering tuition-free college programs have an updated resource: the Free College Handbook, a practical guide to designing and implementing place-based scholarship programs, produced by the Upjohn Institute for Employment Research.
The handbook is co-edited by Michelle Miller-Adams of the Upjohn Institute and Jennifer Iriti of the University of Pittsburgh. It draws on more than a decade of research and contributions from over a dozen scholars.
“Communities are using free college not just to help students, but to strengthen economies, grow communities and build opportunity,” said Miller-Adams. “This handbook gives leaders a clear starting point.”
Guide for policymakers, educators, philanthropists
Designed for mayors, state officials, college administrators, nonprofit leaders, philanthropists and civic groups, the handbook answers 25 of the most common questions about Promise programs -- from funding and eligibility to measuring impact.
The handbook focuses on “place-based” scholarships, commonly known as Promise programs, which provide tuition support to residents of a city, school district or state. Unlike traditional financial aid based on income or merit, these programs guarantee tuition support for all eligible students, making college costs more predictable and removing other barriers to access.
Roots in Kalamazoo, growth nationwide
The modern free college movement began with the Kalamazoo Promise in 2005. Since then, Promise-style programs have spread to nearly 150 communities, two dozen states and almost 100 community colleges.
Programs are launched for different reasons, including addressing worker shortages, boosting college enrollment, stabilizing population decline or expanding access to higher education for historically underserved students. With these different motivations, they all share one goal: using education to build stronger communities.
Not everything is free, but the impact is real
The handbook notes that most Promise programs cover tuition and fees only, not housing, food, books or transportation. Still, removing tuition as a barrier can change expectations, increase college-going rates, and make communities more attractive places to live and invest.
Types of Promise programs covered
The handbook highlights three main types of place-based scholarship models:
- Community-based programs led by local coalitions of education, nonprofit, municipal, business, and philanthropic leaders.
- Statewide programs created by legislatures and often tied to workforce needs.
- Institution-based programs offered by community colleges to serve local students.
About the Handbook
The development of the Free College Handbook, first published in 2022, was funded by the Kresge Foundation. The revised and expanded 2025 edition is available for download and includes explainer videos for public use.
In addition to funding the handbook, the grant from the Kresge foundation is supporting the creation of a new online resource, the Promise Programs Hub. The website will house the Free College Handbook, as well as a database with information on tuition free college programs around the nation, a searchable bibliography of scholarly research, “explainer” videos,” and a range of other resources.
Experts
