Foster Youth: Higher Education Outcomes and Federal Support
link to page 1 
August 12, 2016
Foster Youth: Higher Education Outcomes and Federal Support
This brief provides information about the challenges for
school completion rates for foster youth are a contributing
current and former foster youth (hereinafter, “foster youth,”
factor. Other factors may include a youth’s inability to meet
unless further specified) in enrolling in and completing
selective admission standards at four-year schools; the cost
higher education. It also discusses federal financial
of higher education; a belief by the youth that college is not
resources for foster youth. Federal programs that are
for them; and a lack of knowledge about the process of
intended to encourage college attendance provide student
applying to college, including high school course work
support services and financial aid. These and other
needed, how and when to apply, and how to access
education-focused programs targeted to foster youth have
financial aid.
generally not been rigorously evaluated to determine if they
assist the population in completing college.
As shown in Figure 1, fewer than 7% of the foster care
alumni in the Midwest Evaluation study received a two-
Educational Outcomes
year (4.4%) or four-year (2.5%) college degree, compared
According to the research literature, foster youth are more
to over one-third of young adults the same age. A May
likely to face challenges in graduating from high school.
2016 report by the Government Accountability Office
Foster youth face a number of obstacles that can begin in
(GAO) identified that barriers to persisting in school can
elementary school and likely contribute to lower test scores
include that former foster youth in college have few
and lower graduation rates. Such obstacles include frequent
emotional and familial supports, are often preoccupied with
moves while in foster care that lead to multiple and mid-
the need to support themselves financially, and struggle to
year school changes, absences from school, disciplinary
overcome a weak academic foundation.
issues, and unmet special education needs.
Federal Student Support Programs
A study by researchers with the University of Chicago is
Federal funding and other supports for current and former
tracking the educational and other outcomes of youth who
foster youth are in place to help these youth aspire to, pay
emancipated from foster care in three Midwestern states.
for, and graduate from college. The Higher Education Act
The most recent survey of these youth found that at age 26,
(HEA) authorizes college preparatory and student support
20% did not have a high school diploma or GED, compared
programs that target this population, among other
to about 6% of their peers (as reported in the Adolescent
vulnerable populations. Nearly all of these programs are
Health Survey). They were also less likely to have attended
collectively known as the TRIO programs, administered by
at least one year of college by age 26 than other young
the Department of Education (ED). Under the HEA, TRIO-
adults generally—26% vs. 32%.
funded grantees are expected to identify and make services,
such as mentoring and tutoring, available to youth who
Figure 1. Education Outcomes of Foster Care Alumni
were in foster care at age 16 or older (whenever this is
in Three Midwest States and Youth Generally, Age 26
appropriate). The HEA also authorizes services for current
and former foster youth through Student Support
Services—a TRIO program intended to improve the
retention and graduation rates of disadvantaged college
students—which includes temporary housing during breaks
in the academic year. TRIO funds are competitively
awarded by ED to institutions of higher education and other
entities. The funds do not always serve eligible current and
former foster youth at every institution. In FY2016,
Congress appropriated $900 million to TRIO programs.
Separately, the HEA authorizes additional supports through
the Fund for the Improvement of Postsecondary Education
(FIPSE) to establish demonstration projects that provide
comprehensive support services for students who were in
foster care (or homeless) at age 13 or older. FIPSE is a
grant program that seeks to support the implementation of
innovative educational reform ideas and evaluate how well
Source: CRS, based on Mark E. Courtney et al., Midwest Evaluation
they work. As specified in the law, the projects can provide
on the Adult Functioning of Former Foster Youth, 2011.
housing to former foster youth when housing at an
educational institution is closed or unavailable to other
This finding is consistent with multiple studies showing
students. In FY2015, Congress appropriated $7.7 million to
lower college attendance rates for foster youth. Lower high
FIPSE; no funding was appropriated for FY2016.
https://crsreports.congress.gov
link to page 2 Foster Youth: Higher Education Outcomes and Federal Support
Current and former foster youth may also receive
independent students if they were in foster care at age 13 or
educational services under the Chafee Foster Care
older (and are under age 24 and meet certain other
Independence program (CFCIP), administered by the
requirements). This means that the level of federal financial
Department of Health and Human Services (HHS) and
support offered is likely to be higher because only the
authorized under Title IV-E of the Social Security Act. The
student’s income and assets are counted and not that of his
program authorizes states to use CFCIP funding for services
or her parent(s), to determine federal financial support. The
that assist youth in the transition to adulthood, including for
May 2016 GAO report found that 72,000 current and
college preparatory activities and selected expenses
former foster youth who were considered financially
associated with higher education (though not to cover the
independent received federal financial aid in 2013-2014
cost of attendance). States may also dedicate as much as
(this is less than 1% of students receiving financial aid
30% of their program funding to room and board for youth
generally). Table 2 indicates that a greater share of foster
ages 18 to 21. This includes youth enrolled in college or
youth receiving student aid attended two-year colleges than
another postsecondary institution. HHS advises that Chafee
their peers.
funds can also be used for learning activities that do not
pertain to higher education, such as General Equivalency
Table 2. Colleges Attended by Foster Youth and All
Degree (GED) programs. Youth are eligible for CFCIP-
Other Undergraduates Receiving Federal Student Aid
funded services until age 21 if they are likely to remain in
foster care (as determined by each state), have aged out of
Foster Youth
All Other Students
care, or leave foster care at age 16 or older for adoption or
Public Four-Year
30%
36%
kinship guardianship. CFCIP funding is a mandatory
appropriation of $140 million annually to states based on
Public Two-Year
43%
29%
their relative share of children in care throughout the United
For-profit
15%
18%
States, with each state receiving a minimum amount (e.g.,
“hold harmless” requirement).
Nonprofit
12%
17%
Federal Financial Assistance
Source: CRS, based on GAO Report GAO-16-343, May 2016.
Youth who qualify for the CFCIP are eligible for the
Federal law does not address the length of time that
Chafee Education and Training Voucher (ETV) program,
applicants must have been in foster care, or the necessary
administered by HHS. Vouchers of up to $5,000 annually
reasons for exiting care, to be eligible to claim independent
are available for full- or part-time attendance at an
status; however, the federal financial aid form, known as
institution of higher education, as defined by the HEA.
the Free Application for Federal Student Aid (FAFSA),
Youth are eligible to receive ETVs until age 21, except that
instructs current and former foster youth that the financial
youth receiving a voucher at age 21 may continue to
aid administrator at their school may require them to
participate in the voucher program until age 23 if they are
provide proof that they were in foster care. As directed by
enrolled in a postsecondary education or training program
P.L. 113-76, ED has modified the electronic FAFSA form
and are making satisfactory progress toward completing
to inform self-identified foster youth that they may qualify
that program. Approximately 16,400 to 17,400 youth have
for federal financial assistance, including the ETV program.
received ETVs in the most recent years data are available.
The form also provides them with contact information for
Table 1. Number of Students Receiving ETVs
state child welfare personnel. Foster youth cannot receive a
combination of federal student aid and ETVs that totals
Year
Number of Students
more than the actual cost of attendance, or otherwise claim
FY2007
12,692
the same expenses under multiple federal programs.
FY2008
16,400
The GAO report highlighted that many foster youth are not
FY2009
16,500
aware of resources for college. GAO recommended that
ED, in consultation with HHS, create webpages directed to
FY2010
17,400
foster youth so they can more readily find such information.
FY2011
17,117
In addition, GAO recommended that ED and HHS should
jointly study potential options for enabling child welfare
FY2012
16,554
caseworkers and other adults who work with foster youth to
FY2013
16,548
more actively assist them with college planning. In June
2016, ED published the “Foster Care Transition Toolkit,” in
Source: CRS correspondence with HHS, and HHS budget requests.
partnership with HHS and other federal departments, about
education and other resources for youth aging out of care.
Funding for the ETV program is discretionary and is
distributed in the same way as CFCIP funding but without
This brief accompanies CRS In Focus IF10450, Foster
the hold harmless requirement. The program received
Youth: State Support for Higher Education.
FY2016 appropriations of $43.3 million.
Current and former foster youth can also apply for federal
Adrienne L. Fernandes-Alcantara, Specialist in Social
student aid, including the Federal Pell Grant program and
Policy
William D. Ford Federal Direct Loan program. Both are
IF10449
authorized under the HEA. Youth can qualify as
https://crsreports.congress.gov
Foster Youth: Higher Education Outcomes and Federal Support
Disclaimer
This document was prepared by the Congressional Research Service (CRS). CRS serves as nonpartisan shared staff to
congressional committees and Members of Congress. It operates solely at the behest of and under the direction of Congress.
Information in a CRS Report should not be relied upon for purposes other than public understanding of information that has
been provided by CRS to Members of Congress in connection with CRS’s institutional role. CRS Reports, as a work of the
United States Government, are not subject to copyright protection in the United States. Any CRS Report may be
reproduced and distributed in its entirety without permission from CRS. However, as a CRS Report may include
copyrighted images or material from a third party, you may need to obtain the permission of the copyright holder if you
wish to copy or otherwise use copyrighted material.
https://crsreports.congress.gov | IF10449 · VERSION 3 · NEW
August 12, 2016
Foster Youth: Higher Education Outcomes and Federal Support
This brief provides information about the challenges for
school completion rates for foster youth are a contributing
current and former foster youth (hereinafter, “foster youth,”
factor. Other factors may include a youth’s inability to meet
unless further specified) in enrolling in and completing
selective admission standards at four-year schools; the cost
higher education. It also discusses federal financial
of higher education; a belief by the youth that college is not
resources for foster youth. Federal programs that are
for them; and a lack of knowledge about the process of
intended to encourage college attendance provide student
applying to college, including high school course work
support services and financial aid. These and other
needed, how and when to apply, and how to access
education-focused programs targeted to foster youth have
financial aid.
generally not been rigorously evaluated to determine if they
assist the population in completing college.
As shown in Figure 1, fewer than 7% of the foster care
alumni in the Midwest Evaluation study received a two-
Educational Outcomes
year (4.4%) or four-year (2.5%) college degree, compared
According to the research literature, foster youth are more
to over one-third of young adults the same age. A May
likely to face challenges in graduating from high school.
2016 report by the Government Accountability Office
Foster youth face a number of obstacles that can begin in
(GAO) identified that barriers to persisting in school can
elementary school and likely contribute to lower test scores
include that former foster youth in college have few
and lower graduation rates. Such obstacles include frequent
emotional and familial supports, are often preoccupied with
moves while in foster care that lead to multiple and mid-
the need to support themselves financially, and struggle to
year school changes, absences from school, disciplinary
overcome a weak academic foundation.
issues, and unmet special education needs.
Federal Student Support Programs
A study by researchers with the University of Chicago is
Federal funding and other supports for current and former
tracking the educational and other outcomes of youth who
foster youth are in place to help these youth aspire to, pay
emancipated from foster care in three Midwestern states.
for, and graduate from college. The Higher Education Act
The most recent survey of these youth found that at age 26,
(HEA) authorizes college preparatory and student support
20% did not have a high school diploma or GED, compared
programs that target this population, among other
to about 6% of their peers (as reported in the Adolescent
vulnerable populations. Nearly all of these programs are
Health Survey). They were also less likely to have attended
collectively known as the TRIO programs, administered by
at least one year of college by age 26 than other young
the Department of Education (ED). Under the HEA, TRIO-
adults generally—26% vs. 32%.
funded grantees are expected to identify and make services,
such as mentoring and tutoring, available to youth who
Figure 1. Education Outcomes of Foster Care Alumni
were in foster care at age 16 or older (whenever this is
in Three Midwest States and Youth Generally, Age 26
appropriate). The HEA also authorizes services for current
and former foster youth through Student Support
Services—a TRIO program intended to improve the
retention and graduation rates of disadvantaged college
students—which includes temporary housing during breaks
in the academic year. TRIO funds are competitively
awarded by ED to institutions of higher education and other
entities. The funds do not always serve eligible current and
former foster youth at every institution. In FY2016,
Congress appropriated $900 million to TRIO programs.
Separately, the HEA authorizes additional supports through
the Fund for the Improvement of Postsecondary Education
(FIPSE) to establish demonstration projects that provide
comprehensive support services for students who were in
foster care (or homeless) at age 13 or older. FIPSE is a
grant program that seeks to support the implementation of
innovative educational reform ideas and evaluate how well
Source: CRS, based on Mark E. Courtney et al., Midwest Evaluation
they work. As specified in the law, the projects can provide
on the Adult Functioning of Former Foster Youth, 2011.
housing to former foster youth when housing at an
educational institution is closed or unavailable to other
This finding is consistent with multiple studies showing
students. In FY2015, Congress appropriated $7.7 million to
lower college attendance rates for foster youth. Lower high
FIPSE; no funding was appropriated for FY2016.
https://crsreports.congress.gov
link to page 2 Foster Youth: Higher Education Outcomes and Federal Support
Current and former foster youth may also receive
independent students if they were in foster care at age 13 or
educational services under the Chafee Foster Care
older (and are under age 24 and meet certain other
Independence program (CFCIP), administered by the
requirements). This means that the level of federal financial
Department of Health and Human Services (HHS) and
support offered is likely to be higher because only the
authorized under Title IV-E of the Social Security Act. The
student’s income and assets are counted and not that of his
program authorizes states to use CFCIP funding for services
or her parent(s), to determine federal financial support. The
that assist youth in the transition to adulthood, including for
May 2016 GAO report found that 72,000 current and
college preparatory activities and selected expenses
former foster youth who were considered financially
associated with higher education (though not to cover the
independent received federal financial aid in 2013-2014
cost of attendance). States may also dedicate as much as
(this is less than 1% of students receiving financial aid
30% of their program funding to room and board for youth
generally). Table 2 indicates that a greater share of foster
ages 18 to 21. This includes youth enrolled in college or
youth receiving student aid attended two-year colleges than
another postsecondary institution. HHS advises that Chafee
their peers.
funds can also be used for learning activities that do not
pertain to higher education, such as General Equivalency
Table 2. Colleges Attended by Foster Youth and All
Degree (GED) programs. Youth are eligible for CFCIP-
Other Undergraduates Receiving Federal Student Aid
funded services until age 21 if they are likely to remain in
foster care (as determined by each state), have aged out of
Foster Youth
All Other Students
care, or leave foster care at age 16 or older for adoption or
Public Four-Year
30%
36%
kinship guardianship. CFCIP funding is a mandatory
appropriation of $140 million annually to states based on
Public Two-Year
43%
29%
their relative share of children in care throughout the United
For-profit
15%
18%
States, with each state receiving a minimum amount (e.g.,
“hold harmless” requirement).
Nonprofit
12%
17%
Federal Financial Assistance
Source: CRS, based on GAO Report GAO-16-343, May 2016.
Youth who qualify for the CFCIP are eligible for the
Federal law does not address the length of time that
Chafee Education and Training Voucher (ETV) program,
applicants must have been in foster care, or the necessary
administered by HHS. Vouchers of up to $5,000 annually
reasons for exiting care, to be eligible to claim independent
are available for full- or part-time attendance at an
status; however, the federal financial aid form, known as
institution of higher education, as defined by the HEA.
the Free Application for Federal Student Aid (FAFSA),
Youth are eligible to receive ETVs until age 21, except that
instructs current and former foster youth that the financial
youth receiving a voucher at age 21 may continue to
aid administrator at their school may require them to
participate in the voucher program until age 23 if they are
provide proof that they were in foster care. As directed by
enrolled in a postsecondary education or training program
P.L. 113-76, ED has modified the electronic FAFSA form
and are making satisfactory progress toward completing
to inform self-identified foster youth that they may qualify
that program. Approximately 16,400 to 17,400 youth have
for federal financial assistance, including the ETV program.
received ETVs in the most recent years data are available.
The form also provides them with contact information for
Table 1. Number of Students Receiving ETVs
state child welfare personnel. Foster youth cannot receive a
combination of federal student aid and ETVs that totals
Year
Number of Students
more than the actual cost of attendance, or otherwise claim
FY2007
12,692
the same expenses under multiple federal programs.
FY2008
16,400
The GAO report highlighted that many foster youth are not
FY2009
16,500
aware of resources for college. GAO recommended that
ED, in consultation with HHS, create webpages directed to
FY2010
17,400
foster youth so they can more readily find such information.
FY2011
17,117
In addition, GAO recommended that ED and HHS should
jointly study potential options for enabling child welfare
FY2012
16,554
caseworkers and other adults who work with foster youth to
FY2013
16,548
more actively assist them with college planning. In June
2016, ED published the “Foster Care Transition Toolkit,” in
Source: CRS correspondence with HHS, and HHS budget requests.
partnership with HHS and other federal departments, about
education and other resources for youth aging out of care.
Funding for the ETV program is discretionary and is
distributed in the same way as CFCIP funding but without
This brief accompanies CRS In Focus IF10450, Foster
the hold harmless requirement. The program received
Youth: State Support for Higher Education.
FY2016 appropriations of $43.3 million.
Current and former foster youth can also apply for federal
Adrienne L. Fernandes-Alcantara, Specialist in Social
student aid, including the Federal Pell Grant program and
Policy
William D. Ford Federal Direct Loan program. Both are
IF10449
authorized under the HEA. Youth can qualify as
https://crsreports.congress.gov
Foster Youth: Higher Education Outcomes and Federal Support
Disclaimer
This document was prepared by the Congressional Research Service (CRS). CRS serves as nonpartisan shared staff to
congressional committees and Members of Congress. It operates solely at the behest of and under the direction of Congress.
Information in a CRS Report should not be relied upon for purposes other than public understanding of information that has
been provided by CRS to Members of Congress in connection with CRS’s institutional role. CRS Reports, as a work of the
United States Government, are not subject to copyright protection in the United States. Any CRS Report may be
reproduced and distributed in its entirety without permission from CRS. However, as a CRS Report may include
copyrighted images or material from a third party, you may need to obtain the permission of the copyright holder if you
wish to copy or otherwise use copyrighted material.
https://crsreports.congress.gov | IF10449 · VERSION 3 · NEW