Table of Contents

Introduction ..................................................................................................................................... 2

Section I — Define Your Strategy ..................................................................................................... 3

Section II — Set the Agenda ............................................................................................................. 6

Section III — Build Support .............................................................................................................. 9

Section IV — Follow Through ......................................................................................................... 11

Section V — Next Steps .................................................................................................................. 12

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Introduction
Congratulations, you won! You and your team ran a winning campaign and earned the trust of your
constituents to represent them and their interests. Serving your community, state and country is an
extraordinary responsibility and opportunity, and our organizations stand ready to assist in you in
that effort. Based on our more than 50 years of experience in politics and public policy, the Campaign
for Free College Tuition and Rise, Inc. know that governing is often just as challenging as campaigning.
The realities of governing with too few resources, brokering compromises, and enacting new policies
bring a new dimension of complexity to public service. Moreover, the narrow timeframe between
Election Day and Inauguration Day means that there is little time to waste and much work to do to
maintain the momentum from your election victory.

This tool kit is designed to help legislators and executive branch officials begin 2019 with a thorough
and actionable strategy for building or expanding a free college tuition program in your state. In the
pages that follow, you will find a framework and resources for setting the agenda and building an
advocacy program that will deliver real results. Additionally, you will find tactics for overcoming
obstacles that may arise along with suggestions that will make your free tuition program sustainable.

Often, governance is framed as a tradeoff between doing politically expedient things and “doing the
right thing.” The good news is that elected officials working on free college tuition do not have to
choose. Through our work in states as diverse as California, Rhode Island, and Maryland we have seen
firsthand that free college tuition is both the right and popular thing to do. Free tuition at public
colleges maintains bipartisan support from over 75 percent of Americans according to our quarterly
national polling, and state-level programs are helping countless students go to college and graduate
with less student loan debt. We are excited to work with you to bring the power of free college tuition
to more students and families in your state.

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Section I —
Define Your Strategy

How to frame a successful college tuition program?

The leaders of the most successful free tuition programs have outlined clear goals, programs, and a
pathway for achieving them. Their strategies inform their approach to their stakeholders as they
develop policy priorities, messaging and communications, advocacy and much more. As with free
tuition programs themselves, there is no single strategy that is right for every state. Instead, strategies
should be derived from the answers to three primary questions:

1. How will you fulfill your campaign promise to voters?

2. How will you respond to your state’s specific needs?

3. How will you sustain engagement?

Following each framing question is an example of how leaders have tackled that question in their
state. For more examples of free tuition programs across the nation, explore the Campaign for Free
College Tuition’s Briefing Book, especially Chapter I.1

How will you fulfill your campaign promise to voters?

In 2017, New Jersey Governor Phil Murphy campaigned on making two years of community college
free for every resident in the state. Despite tough budget negotiations in the state legislature,
Governor Murphy was able to secure $20 million to launch to a program that begins to phase in free
college tuition for community college students. This initial success means that approximately 13,000
students will benefit from the free tuition program.2 Just as importantly, it signals to New Jersey
voters that Governor Murphy is serious about fulfilling one of his major campaign promises—one that
the governor plans to expand in future budget cycles.

1
https://www.freecollegenow.org/briefing_book
2
https://www.northjersey.com/story/news/new-jersey/governor/2018/09/27/phil-murphy-offers-more-
details-nj-free-community-college-plan/1446069002/

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How will you respond to your state’s specific needs?
Elected in 2011, Tennessee Governor Bill Haslam recognized that the state’s shortage of skilled
workers posed a threat to economic security. In 2014, he launched the Drive to 55—establishing a
statewide goal of 55 percent of Tennesseans earning a college degree or certificate by 2025. The
centerpiece of the program is the Tennessee Promise, a free tuition program that has increased
college enrollment and decreased the number of students taking out student loan debt by double
digits. Governor Haslam’s workforce development strategy has helped free tuition thrive in
Tennessee.

How will you sustain engagement?

As with any public program, free tuition programs require sustained attention and investment in order
to thrive. In 2017, Governor Gina Raimondo and the General Assembly created Rhode Island’s
Promise, enabling students to enroll at the Community College of Rhode Island tuition-free. In her re-
election campaign, Governor Raimondo made it clear she intends to expand the Rhode Island Promise
to the state’s four-year institutions just as she originally proposed. Her proposal would allow eligible
juniors and seniors at Rhode Island College and the University of Rhode Island to attend tuition-free.
These types of commitments can help public officials continue attracting support and attention to not
only sustain, but also grow free tuition programs over time.

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Articulating Your Strategy
As you consider creating your own free tuition strategy, you can use our strategy framework to clearly
outline your vision and goals for your team. The program designs from other states are described in
Chapter I of CFCT's Briefing Book, which is downloadable from www.freecollegenow.org. This
framework is designed to be an evergreen resource as you launch, expand, and sustain your free
tuition program.

BUILDING A FREE COLLEGE TUITION STRATEGY FOR [STATE NAME]

What is the main goal of

(e.g., more college graduates)
your free tuition program?

Who are the stakeholders

you will need to persuade (e.g., advocacy groups concerned about new spending)
to get it done?

How will you engage

business, higher (e.g., solicit stories from students about the rising cost of
education, and student college, and host joint advocacy trips with students and
leaders to advocate for business leaders)
your program?

Are other cities or states

implementing a program
(e.g., Tennessee Promise or the Kalamazoo Promise)
similar to the one you
want to build?

How will you know if your

program is successful? (e.g., double digit gains in student enrollment)

How will you communicate

the success of your (e.g., highlight the stories of students that benefit)
program?

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Section II —
Set the Agenda

How do you create a winning free tuition policy agenda?

Once you have determined your free tuition strategy, setting the policy agenda for your program is the
next step in making your free college tuition program a reality. The policy agenda is a high-level
framework that can be translated into specific legislation as the legislative process proceeds.

Establishing a policy agenda is also an important step towards earning the buy-in of key stakeholders
ranging from other elected officials to higher education advocacy groups. By articulating the vision for
your policy agenda, you will be able to solicit input and feedback on prospective program designs
before legislation is in motion, and thereby more difficult to amend.

How large should my free tuition program’s scope be?

Policymakers need to strike a delicate balance when outlining the scope of their free college tuition
program. Design one that is too large without sufficient detail (e.g., how the program will be fiscally
sustainable) and it risks being derailed by critics. On the other hand, programs that are too limited
may not achieve the desired outcomes and leave little to negotiate during the legislative process. In
state after state, governors and state legislative leaders have managed this tension by introducing
more comprehensive proposals and working to implement them in pieces. For example, in California,
the State Assembly Speaker introduced “Degrees, Not Debt,” a comprehensive package for addressing
college affordability for California’s nearly 3 million students. Although most of the package did not
advance in the legislative session, one piece of the proposal — a first year of tuition free community
college – was enacted into law six months later. In 2018, nearly 20,000 California students are
expected to attend college tuition free as a result. As in California, the legislative model of introducing
an ambitious policy agenda and being prepared to implement it in segments can work well in multiple
contexts.

What are the key free college tuition program design considerations?

As with any public program, there are multiple design considerations to take into account when
creating a free tuition program. These features inform how and when students receive financial aid,
participate in programs such as mentoring, and eligibility requirements such as family income

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constraints. Here is an at-a-glance summary of key design features that are commonly used. (Explore
Chapter III of our Briefing Book to see a complete list of features by state.)

FREE TUITION PROGRAM FEATURES

Feature Overview Example

California is the only state currently

First Dollar Grant covers cost of tuition before
offering free community college tuition,
Scholarship any additional aid is considered.
regardless of other aid.

The Tennessee and Rhode Island Promises

Last Dollar Grant awarded to cover tuition
offers free community college tuition via a
Scholarship costs after Pell and state grants.
Last Dollar Scholarship.

Oregon enacted this model in 2015, and

Provide a minimum of $1,000 to
“Middle” Dollar three quarters of students surveyed
students, even when Pell would
Scholarship agreed that the program helped them see
cover tuition costs.
they could afford college.

This is the model the pioneering and very

No income tests for scholarship successful Tennessee Promise uses, with
Universal Model
eligibility. no family income limits on students
wishing to earn a Promise scholarship.

In its first year, New York’s Excelsior

Scholarship was available to students
Family-Income Uses means tests to determine
whose families earn up to $100,000 in its
Model eligibility.
first year. The limit will be raised to
$125,000 in year three of the program.

Rhode Island’s Promise program is only

Uses academic achievement to
Merit-Based Model available to students with a 2.5 high
determine scholarship eligibility.
school GPA or above.

Tennessee Promise students commit to

Programs require students
meeting with an adult mentor at least 3
Mentorship participate in mentorship to
times in the course of each Academic year
receive a scholarship.
and in their senior year of High School.

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How will we sustain the free college tuition program?

Sustainability is the core question for any new public program. Cities and states have experimented
with different approaches to financing free public college tuition programs, ranging from relying on a
discretionary budgeting process to surplus lottery funds. The choice for how to budget for a free
tuition program depends entirely on local and state contexts, availability of funding, and other
considerations. However, the most effective free tuition programs leverage budget and policy designs
that enhance their sustainability for the long haul. If states are looking for new revenue resources, two
recent Supreme Court decisions offer opportunities for states to generate new revenue from either
online sports gambling or taxing of online purchases. For more information on these decisions and
other revenue ideas, see Chapter IV of our Briefing Book.3

3
https://www.freecollegenow.org/briefing_book

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Section III —
Build Support

How do you build an advocacy program for your free tuition proposal?

Once you have a strategy and policy agenda outlined, the next step is to begin building an advocacy
program that will generate support for your plan. There are three primary roles that elected officials
play in building advocacy programs. First, elected officials are best positioned to convene
stakeholders from across sectors who are involved in advocating for policy change. Additionally,
elected leaders can solicit stories from groups about how they would be affected by the proposed
policy change. Finally, elected officials can amplify messages about how the policy will make an
impact.

Convening Stakeholders
Sometimes the most powerful thing an elected official can do is create a seat at the table for groups to
make their voices heard. Hosting a meeting where leaders from the business community, labor
unions, leaders in the higher education sector, and/or students can share their input and ideas about
how to build support for free tuition is an essential step for creating an advocacy program that will
help advance your legislation. By fostering relationships among groups that might not otherwise
connect with each other, your convening will build a strong foundation for your advocacy. As your bill
advances through the legislature, the members of this coalition can serve as powerful allies in helping
the program overcome obstacles that may arise.

Soliciting Stories
Personal narratives are a key part of any advocacy program. The stories that stakeholder groups share
is especially important for legislative advocacy and earning media. Elected officials and their teams
can support this process by asking groups to submit stories that reflect how they are affected by the
status quo and how their life would change under the new policy. These stories are at least as
persuasive as supporting data and research because they put a human face on a proposed change.
For example, when reporters cover free tuition proposals, they nearly always ask to interview students
who would be affected. By cultivating these relationships with students, you and your team will be
well positioned to shape the narrative as the advocacy campaign unfolds. Students are especially
useful advocates during legislative sessions because state legislators typically hear from them less
frequently than other constituents who have professional advocacy groups.

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Amplifying Messages
Effective advocacy programs depend on the ability to develop a narrative about your free tuition
program and why it will be successful. You can build that narrative by amplifying the messages and
stories of constituents who would benefit from your free tuition program. In considering how to
amplify your messages most effectively, utilize each and every tool at your disposal. The “Bully Pulpit”
of elected office means that you can use digital and social media, press conferences, and site visits
(e.g., visiting a local high school or college) to build awareness about your proposal. Since free college
tuition is overwhelmingly popular, the goal of these efforts will be to spread awareness about the
effort – rather than trying to persuade new people that it is a worthy idea. As constituents become
aware of your program, you will broaden the base of prospective supporters who will advocate on
behalf of the program.

What are the most persuasive messages for free college tuition?

Effective communications strategy means differentiating messages to targeted audiences. For

example, whereas students may be more concerned about the rising costs of college, business leaders
are more likely to be persuaded by shortages in the number of college educated workers. There are
several potential strategies for segmenting communications about free college tuition to different
audiences; however, there are also certain messages that consistently rank highly with voters across
the nation. After conducting two national surveys, the Campaign for Free College Tuition and polling
firm PSB found that the messages that rise to the forefront are:

1. “Lack of money shouldn’t keep qualified students from going to college, and my state
government should help.”

2. “We need to make college free so young people don’t have a mountain of debt when they finish
school.”

Overall, the surveys found that emphasizing the effect on people was more important than talking
about the net value to society. For example, messages that young people, students, and families will
benefit are more persuasive overall than discussing how society will improve as a result. Even as you
build support in the business community based on the impact a greater number of skilled workers will
have on your state’s economy, you still need to focus your overarching messages on the discrete
benefits to people, particularly students and hard-working families that the program will bring.

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Section IV —
Follow Through

Once your free college tuition program becomes law, what’s next?

After enacting new programs, policymakers sometimes forget about them and move on to the next
challenge. However, successful free college tuition programs require consistent investment and
maintenance in order to be successful. There are three primary steps you can take to ensure the
success of your program.

Awareness Campaign
The success of free college tuition programs depends on more students taking advantage of them
than would have otherwise under the old model. Free tuition is a persuasive message on its own, but
it also needs an awareness campaign in order to help students take advantage of it. Elected leaders
should partner with colleges and universities to ensure that they are making as many students aware
of the program as possible. These public awareness campaigns can take the form of campus-level
outreach, using digital or traditional media programs that reach young people where they are.

Proactive Communication
As free college tuition programs begin their implementation, challenges will invariably arise.
Sometimes these issues are a result of the implementation process, and in other instances can be
caused by politically-motivated attacks on the program. In either case, the best defense is a proactive
offense that is communicating the initial success of the program. Elected officials should proactively
share the stories of students enrolling for the first time, and how they have been affected by the free
tuition programs.

Preparing for the Next Budget Cycle

Once you have enacted a free tuition program, you will have opportunities to expand it in future
cycles. The lead time before the next budget cycle is an important period in which to reflect on lessons
from the previous legislative session and prepare for the next. As with any process, you will have
opportunities to refine your approach and improve your processes for advocacy. You should also
consider ways to expand the program itself. Did you win two years of free community college in the
first cycle? Maybe now is the time to try for four. Or, maybe open the free tuition program up to adults
looking to complete their degrees. There are countless ways to continue making free tuition available
to more students in your state.

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Section V —
Next Steps

I’m ready to advocate for free college tuition. What’s next?

With this toolkit, you have a framework for helping your free tuition plans become a reality. Capitalize
on the time leading up to Inauguration Day and work through each of these steps to build a strong
advocacy program to win free college tuition as fast as possible. As you move forward, follow each
step to make progress towards your goals:

1. Define Your Strategy: Articulate a clear strategy for why your state needs a free tuition
program, and how you will get there.

2. Set the Agenda: Establish a policy agenda that will build the foundation for your free tuition
program or expand upon an existing one.

3. Build Support: Rally business, higher education, and student leaders to support your vision
for free tuition and communicate how they will be affected by it.

4. Follow Through: Raise awareness about your free tuition program and communicate its
successes earlier. Prepare for the next budget cycle and expand free tuition.

The Campaign for Free College Tuition and Rise standby as resources to help shape your programs
and policies. Please reach us directly at info@freecollegenow.org to learn more about our work to
support free college tuition or bring our efforts to your state. We look forward to working with you and
are grateful for your leadership.

CFCT Contact Information Rise Contact Information

Web — www.freecollegenow.org/contact_us Web — www.carise.org/contact-us
Facebook — facebook.com/freecollegenow Facebook — facebook.com/RiseCalifornia
Twitter — @freecollegenow Twitter — @risecalifornia
Email — info@freecollegenow.org Email — info@carise.org

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