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This paper analyzes free college policy proposals, focusing on federal-state partnerships. The purpose of this paper is (a) to synthesize insights on federal-state partnerships to better understand how such proposals could affect college affordability; (b) trace the development of free college idea; and (c) understand the role of a federal-state partnership in broader tuition-free college policy. The intent is to provide theoretical and conceptual guidance to higher education policy researchers and policy-makers. This analysis outlines how governance, goals, targets, and accountability shape policy proposals in federal free college policy.