May 29, 2024

Dear President Spilka,

We, the undersigned education equity organizations, write to express deep appreciation for your steadfast leadership in addressing the Commonwealth’s most pressing challenges, including improving postsecondary access and opportunities. As researchers, practitioners, and community leaders from across the Commonwealth, we have a common interest in improving higher education access and affordability for all — particularly for students from low-income backgrounds, students of color, and first-generation students. The policies you have championed in recent years will undoubtedly help lay the groundwork for a public higher education system where all students can complete their degrees without financial barriers.

We write today to share our support for the significant higher education investments proposed in the FY25 Senate budget. We are especially grateful for the additional funds allocated for MassGrant Plus Expansion and the SUCCESS fund, which will help improve access and completion. We are also encouraged by the MassEducate initiative — a historic proposal offering tuition-free community college education for all. In particular, we appreciate the proposed additional $1,200 stipend for books and supplies for Pell-eligible students, who often encounter hunger and homelessness as they attempt to balance higher education expenses with basic needs. We also wholeheartedly endorse the Senate's proposal to establish a Higher Education Quality and Affordability Commission, which will work on developing recommendations to improve public higher education quality and affordability.

While these investments are critical, we believe that Massachusetts must take a systemic approach as it works to marshal the resources necessary to make college truly affordable for all, while also ensuring that public colleges and universities have the resources required to provide high-quality education to a larger number of students in a sustainable manner. We have included below additional details about some of the remaining concerns we have with the Senate proposal, as currently written, and respectfully offer several suggestions to help further strengthen MassEducate. These suggestions include a range of policy options that would create a more systemic approach to funding higher education while also allowing the state to use our limited resources in a more impactful and equity-centered way.

Our Concerns:

As you may recall from our March 13, 2024 letter, we outlined our key priorities for a progressive, equity-centered approach to improving higher education access and affordability. While we appreciate that the Senate proposal attempts to address some of the priorities outlined in our letter, we remain concerned that proceeding with free community college for all will prematurely direct a disproportionate share of new resources to upper and middle income families. While these students certainly have difficulty paying for college, they typically possess more resources to overcome them. In contrast, those from working-class and low-income backgrounds face severe financial challenges that significantly impede their pursuit of higher education and lead to large disparities in degree attainment.

Importantly, It is essential to underscore that Pell-eligible students, while already benefiting from financial aid that covers their tuition, fees, and book supplies, would only see a potential gain of up to $1,200 from the MassEducate program. In contrast, students from more affluent backgrounds who are ineligible for Pell Grants could potentially receive up to $6,600, a sum that could cover their entire tuition and fees. This would widen the existing inequities, creating a significant gap where:

Students with incomes over $130K would receive more than five times the grant amount that a Pell-eligible student is set to receive (see Figure 1 in the Appendix for a full breakdown).

Moreover, our racial equity analysis shows that for each dollar distributed to a student of color through MassEducate, a white student would receive $1.45 — a significant 45% more.

Our Recommendations:

Building upon the framework outlined in our previous letter and the recent proposal put forth by the Senate, we present the following recommendations. These suggestions aim to strengthen the MassEducate proposal and offer an allocation approach that addresses the disparities mentioned above while still upholding a message of universality and ensuring truly free public higher education opportunities for all. You can find a cost estimate for these recommendations in the Appendix (see Table 1).

Streamline messaging by expanding MassEducate to cover all tuition-free programs: The additional revenue generated from the Fair Share Amendment presents a prime opportunity to simplify and consolidate overlapping student aid programs. To kickstart this effort, we recommend integrating MassGrant Plus and its recent expansion into the "MassEducate" initiative. This not only addresses the cumbersome branding of existing programs but also boosts the visibility of this promising yet often overlooked initiative, which would make the financial aid landscape more accessible to navigate. By leveraging existing funding, Massachusetts can develop a comprehensive state financial aid strategy encompassing all segments of our public higher education system. This move will widen student access, clearly communicating that affordable public education options are available to everyone, regardless of their chosen academic path.

The expanded MassEducate program should be centered on three cornerstone promises:

Income-Based Access to Free Community College: Providing a last-dollar tuition-free grant, complemented by a $1,200 stipend for books and supplies, for all students from households earning at or below 125% of the state median income. While we value universal messaging, we also recognize the need for additional considerations, as outlined below.
Income-Based Access to Free State Universities and UMass Campuses: Offering a last dollar tuition-free grant and a $1,200 stipend for books and supplies to residents below a specified income threshold. This would not require any additional funds as it would be leveraging the existing MassGrant Plus Expansion program.
Enhanced Support for Pell Grant-Eligible Students: In lieu of the additional $1,200 stipend for Pell-eligible students, we recommend doubling the Pell Grant amount as a progressive strategy to alleviate financial burdens for students from low-income backgrounds attending public colleges and universities. These additional funds would help cover the significant unmet financial needs — like the cost of food, housing, transportation, childcare, etc. — that many students face when pursuing a higher education degree.

Acknowledging the financial implications of these commitments, we propose the following recommendations: 1) phasing in the Universal Free Community College proposal to direct funding to students and families facing the most significant financial challenges beyond tuition, fees, books, and supplies (see Figure 2 for a breakdown of

grant allocations at Community Colleges and Figure 3 for State Universities); 2) and/or opting for a gradual approach to achieving the goal of doubling Pell Grant funding over time. By committing to doubling the Pell Grant, Massachusetts would pioneer a progressive educational funding initiative, setting a precedent for other states. This bold step, supported by a coalition of over 130 higher education associations, organizations, and advocacy groups, would establish Massachusetts as a trailblazer in innovative, progressive financial aid solutions.

Ensure that institutions receive adequate funding and infrastructure to support student success: Increasing access and affordability of higher education often results in enrollment increases. In Massachusetts, we’ve seen that firsthand following the launch of MassReconnect. The program, which has eased financial strain for many students, led to a surge in enrollment at the state’s 2-year institutions but has also put a significant strain on the system, particularly on the workload of financial aid and student support services staff. By streamlining and consolidating financial aid programs, we can ease some of the strain on institutions. However, this alone is not sufficient. Research shows enrollment gains without institutional funding gains lead to poor outcomes. Therefore, to maximize the proposed higher education investments, we recommend additional funding for capacity-building efforts at institutions for the necessary implementation of these initiatives. We must also carefully monitor enrollment trends to ensure that institutions have sufficient faculty to enable student progression in high-demand courses and fields. With below average faculty pay in public higher education, this will likely require adjustments to compensation and collective bargaining agreements. Finally, we also recommend providing additional funds to establish a new line item (1596-2439), as proposed in the House budget, to extend the invaluable services funded through the SUCCESS program to state universities. By expanding the SUCCESS program to include state universities, we can provide vital support for community college students transitioning to four-year degrees. These investments will not only bolster persistence but also enhance the likelihood that students will successfully complete their higher education degrees.

Maximize the impact by increasing public awareness of existing programs: While the increased investment in the MassGrant Plus Expansion is a step forward, its underutilization in FY24 reveals the need for improvements. Factors such as a delayed launch, inadequate marketing efforts, and being overshadowed by initiatives like MassReconnect have contributed to its lack of visibility. To address this, we advocate for integrating MassGrant Plus into MassEducate. This integration would prevent further obscurity, especially amidst campaigns like Free Community College for All, and facilitate a comprehensive marketing and communication strategy highlighting the array of affordable pathways available in our state. Moreover, the state should prioritize passing H4269, An Act to Facilitate Student Financial Assistance. This legislation aims to ensure equitable access to financial aid information, particularly for our most vulnerable student populations. By prioritizing this act, we can enhance accessibility to crucial resources and support for all students seeking higher education opportunities.

Higher education stands as an enduring investment, offering tangible returns for both individual students and our state's economy. By infusing equity-centered core principles into the MassEducate proposal, we can guarantee that every dollar invested in higher education yields maximum benefits for our students, especially those encountering substantial barriers.

Your unwavering leadership on this critical issue motivates and propels us forward. We eagerly look forward to partnering with you to shape a higher education landscape that is truly transformative, equitable, and accessible for all Commonwealth residents.

Gratefully,