H.R. 3543 — College for All Act of 2025

This section establishes a new subpart F under Title VII of the Higher Education Act of 1965, titled "College for All Grants for Tuition-Free Public College," to create a federal-state partnership with states and Tribal Colleges and Universities (TCUs) that eliminates tuition and required fees for eligible students. Eligible students—regardless of age or immigration status, without a baccalaureate or higher degree, who have filed a Free Application for Federal Student Aid (FAFSA), and who are not in dual/concurrent enrollment programs or early college high schools—include (1) residents (or those who would qualify for in-state tuition but for immigration status) enrolled or planning to enroll in eligible programs at community colleges or 2-year TCUs; and (2) working-class or middle-class students (as defined in forthcoming section 787(a)(3)) meeting similar criteria at public 4-year institutions or 4-year TCUs. The section defines key terms, including community college (generally public institutions awarding primarily associate degrees or public postsecondary vocational institutions), full-time equivalent students, net price (cost of attendance minus grants and scholarships), and reverse transfer policy (allowing retroactive associate degrees or credit transfers for students moving between community colleges and 4-year institutions).

This section establishes a grant program under a new subpart 2 of part F of title VII of the Higher Education Act of 1965, beginning with award year 2026–2027, to enable private nonprofit 2-year and 4-year historically Black colleges and universities (HBCUs, as defined in part B of title III), Hispanic-serving institutions, Alaska Native-serving institutions, Native Hawaiian-serving institutions, Predominantly Black institutions, Asian American and Native American Pacific Islander-serving institutions, and Native American-serving nontribal institutions (that have not received funds under subpart 1) to eliminate tuition and required fees for eligible students. Eligible students are those enrolled without a baccalaureate or higher degree from households with adjusted gross income at or below $150,000 (single parent dependent or single independent) or $300,000 (married parents or married independent) for award year 2026–2027, with subsequent years adjusted pursuant to HEA section 478(b); grants are calculated based on full-time equivalent eligible students. For 2-year institutions, initial grants equal the number of eligible students multiplied by $5,110 (with increases thereafter by the lesser of the estimated Consumer Price Index increase or another specified amount). Institutions converted from for-profit status are ineligible for 25 years from conversion or enactment, whichever is longer.

This section establishes a grant program under which the Secretary of Education awards funds to the Governors of outlying areas (Northern Mariana Islands, American Samoa, United States Virgin Islands, Guam, and Freely Associated States) beginning with award year 2026–2027. The Governors subaward these funds to eligible public four-year institutions that have entered agreements with one or more such Governors (but not the Governor of the institution's own outlying area if applicable) to cover the difference between in-state and out-of-state tuition and fees for each eligible student, capped at $15,950 per award year and $79,750 in aggregate (prorated for less-than-full-time enrollment), with assurances that funds supplement rather than supplant other aid. Eligible students are those domiciled in an outlying area for at least 12 consecutive months before their freshman year, who have not completed a baccalaureate degree, and who are enrolled at least half-time in an eligible undergraduate program; no additional eligibility requirements may be imposed.

This section revises the Federal Pell Grant program under the Higher Education Act of 1965 (HEA) as follows: (1) repeals the Pell Grant scoring requirement in H. Con. Res. 95 (109th Congress); (2) sets the maximum Pell Grant for award year 2026–2027 at $14,790 for students at institutions of higher education (IHEs) under HEA §101 or Tribal Colleges or Universities (TCUs) under HEA §316(b)(3), or $7,395 at other IHEs, with subsequent years adjusted annually by the Consumer Price Index (rounded to the nearest $5), and authorizes and appropriates necessary funds for FY2026 and thereafter while protecting prior-year appropriations (FY2017–FY2025); (3) changes the lifetime eligibility limit to 7 years and 6 months (from 12 semesters or equivalent); (4) permits Pell Grant payments for living and nontuition expenses (previously limited to tuition, fees, and institution-provided food/housing); and (5) expands Pell Grant eligibility to Dreamer students (defined similarly to former DACA recipients: entered the U.S. before age 16, has U.S. high school diploma or equivalent or postsecondary credits, etc.) and certain other immigration statuses (e.g., deferred enforced departure, temporary protected status), while broadening general HEA eligibility to Dreamer students. (Pell Grants provide need-based aid to low-income undergraduate and certain postsecondary students, which does not need to be repaid.)

This section establishes the Inclusive Student Success Grants program under a new subpart 4 of part F of title VII of the Higher Education Act of 1965 to improve student outcomes at eligible institutions (i.e., underfunded public two-year or four-year institutions receiving below the national average of State appropriations per full-time equivalent student, or certain minority-serving institutions (MSIs) such as part B institutions, Hispanic-serving institutions, Predominantly Black Institutions, and others). The Secretary of Education must award grants to eligible States (i.e., States receiving grants under subpart 1) and Tribal Colleges or Universities (TCUs), distributing appropriated funds as follows: (1) 10% to TCUs via the formula in section 316(d)(3)(B) for evidence tier 1 or 2 reforms or practices (i.e., those meeting criteria for expansion or mid-phase grants under the Elementary and Secondary Education Act's Education Innovation and Research program); (2) 2% for program evaluation; (3) 60% in competitive grants to eligible States; (4) 18% to supplement State competitive grants for evidence tier 1 activities; and (5) 10% to supplement State competitive grants for evidence tier 1 or 2 activities. State grant amounts are based on the number of Federal Pell Grant recipients at eligible institutions; applications must prioritize underfunded and MSI institutions, describe sustainment plans, and detail use for evidence-based reforms (e.g., comprehensive academic, career, and student support services such as mentoring and advising). The Secretary gives priority to States targeting improved enrollment, retention, transfer, completion, or labor market outcomes for underserved students (e.g., students of color, low-income students, first-generation college students, student parents). (Thus, the program supports scaling evidence-based interventions at resource-constrained institutions serving disadvantaged students.)

This section revises authorizations of appropriations for Federal TRIO programs—which provide tutoring, counseling, mentoring, and other support services to help low-income students, first-generation college students, and students with disabilities prepare for, enter, and complete postsecondary education—and GEAR UP (Gaining Early Awareness and Readiness for Undergraduate Programs)—which funds early interventions such as academic support, college counseling, and scholarships for low-income middle and high school students to increase college readiness and enrollment. (1) For Federal TRIO programs, it authorizes $3 billion for FY2026 (from $900 million for FY2009) and such sums as necessary for FY2027 through FY2035 (from FY2010 through FY2014). (2) For GEAR UP, it authorizes $736 million for FY2026 (from $400 million) and such sums as necessary for FY2027 through FY2029.

This section doubles mandatory annual funding for minority-serving institutions—including historically Black colleges and universities (HBCUs), Hispanic-serving institutions (HSIs), Tribal Colleges and Universities (TCUs), Predominantly Black Institutions (PBIs), and others—to $510 million (from $255 million) for FY2026 and each fiscal year thereafter. It also doubles the specified allocations of those funds as follows: (1) to $200 million (from $100 million) for HSI science, technology, engineering, and mathematics (STEM) and articulation programs; (2) to $200 million (from $100 million) for HBCUs and PBIs; and (3) to $110 million (from $55 million) for other eligible institutions.

This section provides a rule of construction stating that nothing in this Act or its amendments changes or abrogates the Federal Government's responsibilities under the Snyder Act (25 U.S.C. 13). (The Snyder Act authorizes the Bureau of Indian Affairs to direct and expend appropriated funds for the benefit, care, and assistance of Indians throughout the U.S., including for education, health, irrigation systems, and administration of Indian property.)