Department of Education

STUDENT FINANCIAL ASSISTANCE

Fiscal Year 2019 Budget Request

CONTENTS

Page

Appropriations Language ........................................................................................................O-1

Appropriation, Adjustments and Transfers ..............................................................................O-2

Summary of Changes .............................................................................................................O-3

Authorizing Legislation............................................................................................................O-4

Appropriations History.............................................................................................................O-5

Summary of Request ..............................................................................................................O-6

Federal Pell grants .............................................................................................................O-8

Federal supplemental educational opportunity grants.......................................................O-22

Federal work-study ...........................................................................................................O-28

Iraq and Afghanistan service grants..................................................................................O-35
STUDENT FINANCIAL ASSISTANCE

O-1

Appropriations Language

NOTES

A full-year 2018 appropriation for this account was not enacted at the time the budget was prepared; therefore, 

the budget assumes this account is operating under the Continuing Appropriations Act, 2018 (Division D of P.L. 115–

56, as amended). The amounts included for 2018 reflect the annualized level provided by the continuing resolution.

No appropriations language is included for this account. All programs in this account for fiscal year 2019 are 

authorized under the expired Higher Education Act of 1965, as amended; when new authoring legislation is enacted, 

appropriations language for these programs will be proposed.
STUDENT FINANCIAL ASSISTANCE

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Appropriation, Adjustments and Transfers

(dollars in thousands)

Appropriation/Adjustments/Transfers 2017

2018

Annualized 

CR 2019

Discretionary: 

Discretionar y Appropriation ............................................... $24,198,210 0 $22,675,352

Discretionar y Annualized CR(P.L.115-56, as amended).... _________0 $24,033,880 _________0

Total, discretionary appropriation............ 24,198,210 24,033,880 22,675,352

Mandatory:

Mandator y Appropriation ............................................... 7,000,801 7,359,463 7,486,000

Total, discretionary and 

mandatory appropriation ...................... 31,199,011 31,393,343 30,161,352
STUDENT FINANCIAL ASSISTANCE

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Summary of Changes

(dollars in thousands)

2018 Annualized CR ......................................................................... $31,393,343

2019.................................................................................................. 30,161,352

Net change................................................................................. -1,231,991

Increases: 

2018

Annualized CR

Change 

from base

Program: 

Increase in discretionary funding to reflect the President’s 

Budget request to fund the Pell Grant program at the 

FY 2017 enacted level. $22,322,722 +$152,630

Increase in indefinite mandatory funding required for the addon to the maximum Pell Grant due to higher estimated

program costs, including the cost associated with the shortterm training policy proposal. 5,977,000 +126,000

Increase in specified mandatory funding for use in the Pell 

Grant program due to amount provided in the HEA for 

FY 2019. 1,382,000 +27,000

Subtotal, increases +305,630

Decreases: 

2018

Annualized CR

Change 

from base

Program: 

Decrease in discretionary funding to reflect the elimination of 

the Supplemental Education Opportunity Grant (SEOG) 

program. 728,151 -728,151

Decrease in discretionary funding to reflect changes to the 

Federal Work Study Program. 983,007 -783,007

Decrease in specified mandatory funding in the HEA to offset 

the short-term training policy proposal for the Pell Grant 

program. 1,382,000 -26,000

Decrease in mandatory funding to reflect the elimination of 

the Iraq and Afghanistan Service Grant (IASG) program. 463 -463

Subtotal, decreases -1,537,621

Net change -1,231,991
STUDENT FINANCIAL ASSISTANCE

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O-4

Authorizing Legislation

(dollars in thousands)

Activity

2018

Authorized Foot

note

2018

Annualized CR

2019

Authorized

2019

Request

Footnote

Federal Pell grants (HEA-IV-A-1): 

Career and Technical:Federal Pell grants (discretionary) .......................... Indefinite $22,322,722 To be determined $22,475,352

Career and Technical:Federal Pell grants (mandatory).............................. Indefinite 7,359,000 To be determined 7,486,000

Federal supplemental educational opportunity grants 

(HEA-IV-A-3)........................................................ 01 728,151 01 0

Federal Work-Study (HEA-IV-C) ................................ 01 983,007 To be determined 200,000

Iraq and Afghanistan Service Grants (HEA-IV-A-10).. Indefinite 463 To be determined 0

Unfunded authorizations

Academic achievement incentive scholarships (HEAIV-A, Chapter 3) ................................................... Indefinite 0 To be determined 0

Total discretionary appropriation 24,033,880 22,675,352

Portion of the discretionary request subject to 

reauthorization.................................................... 1,711,158 22,675,352

Total mandatory appropriation.................................... 7,359,463 7,486,000

Total appropriation ..................................................... 31,393,343 30,161,352

1 The GEPA extension expired September 30, 2015; the program was authorized in 2018 through appropriations language. Reauthorizing 

legislation is not sought for fiscal year 2019.
STUDENT FINANCIAL ASSISTANCE

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Appropriations History

(dollars in thousands)

(Year

Budget

Estimate

to Congressootnote

House 

Allowanceootnote

Senate 

Allowancefootnote Appropriationfootnote

2010 1,801,8091 19,634,905 19,296,8092 19,296,809

2011 1,737,9571 18,475,4923 24,899,9572 24,670,517

2012 30,338,016 22,367,5214 24,670,5174 24,535,281

2013 24,685,281 24,535,2815 24,535,2815 24,400,122

2014 24,685,281 N/A6 24,536,2102 24,486,210

2015 24,486,210 N/A6 24,233,2107 24,198,210

2016 24,198,210 23,828,2108 24,129,3528 24,198,210

2017 24,198,210 22,888,2109 24,198,2109 24,198,2109

2018 22,932,626 24,198,21010 24,198,21010 24,033,88010

2019 22,675,352

1 Reflects Budget proposal to shift funding for Pell Grants and Perkins Loans to their own, separate 

accounts.

2 The level for the Senate allowance reflects Committee action only.

3 The level for the House allowance reflects the House-passed full-year continuing resolution. 4 The level for the House allowance reflects an introduced bill; the level for the Senate allowance reflects 

Senate Committee action only.

5 The level for the House and Senate allowances reflect action on the regular annual 2013 appropriations 

bill, which proceeded in the 112th Congress only through the House Subcommittee and the Senate 

Committee.

6 The House allowance is shown as N/A because there was no Subcommittee action. 7 The level for the Senate allowance reflects Senate Subcommittee action only.

8 The levels for House and Senate allowances reflect action on the regular annual 2016 appropriations 

bill, which proceeded in the 114th Congress only through the House Committee and Senate Committee.

9 The levels for the House and Senate allowances reflect Committee action on the regular annual 2017 

appropriations bill; the Appropriation reflects the Consolidated Appropriations Act, 2017.

10 The levels for the House reflect floor action on an Omnibus appropriation bill; Senate allowances reflect 

Committee action on the regular annual 2018 appropriations bill; the Appropriation reflects the annualized 

Continuing Resolution level.
Summary of Request

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O-6

Summary of Request

Click here for accessible version 

DEPARTMENT OF EDUCATION FISCAL YEAR 2019 PRESIDENT'S BUDGET 

(in thousands of dollars)

Amount Percent

Student Financial Assistance

1. Federal Pell grants (HEA IV-A-1):

(a) Discretionary Pell grants 1 D 22,475,352 22,322,722 22,475,352 152,630 0.68%

(b) Mandatory Pell grants M 5,680,400 5,977,000 6,103,000 126,000 2.11%

(c) Mandatory Funding for Discretionary Program Costs M 1,320,000 1,382,000 1,383,000 1,000 0.07%

Subtotal, Federal Pell grants 29,475,752 29,681,722 29,961,352 279,630 0.94%

Discretionary D 22,475,352 22,322,722 22,475,352 152,630 0.68%

Mandatory M 7,000,400 7,359,000 7,486,000 127,000 1.73%

Federal Pell Grants Program Information (memorandum entry):

Discretionary appropriation D 23,246,000 23,681,000 24,109,000 428,000 1.81%

Mandatory appropriation M 5,821,000 5,977,000 6,103,000 126,000 2.11%

Total, program costs 29,067,000 29,658,000 30,212,000 554,000 1.87%

Base award $4,860 $4,860 $4,860 0 0.00%

Mandatory add-on $1,060 $1,060 $1,060 0 0.00%

Total maximum award $5,920 $5,920 $5,920 0 0.00%

Recipients (in thousands) 7,168 7,399 7,632 233 3.15%

2. Campus-based programs:

(a) Federal supplemental educational opportunity grants (HEA IV-A-3) D 733,130 728,151 0 (728,151) -100.00%

(b) Federal work-study (HEA IV-C) D 989,728 983,007 200,000 (783,007) -79.65%

Subtotal, Campus-based programs 1,722,858 1,711,158 200,000 (1,511,158) -88.31%

3. Iraq and Afghanistan service grants (P.L. 111-39) 1 M 401 463 0 (463) -100.00%

Total 31,199,011 31,393,343 30,161,352 (1,231,991) -3.92%

Discretionary D 24,198,210 24,033,880 22,675,352 (1,358,528) -5.65%

Mandatory M 7,000,801 7,359,463 7,486,000 126,537 1.72%

NOTES: D = discretionary program; M = mandatory program

Detail may not add to totals due to rounding. 

For most mandatory programs, with the exception of Pell Grants, Credit Liquidating, and Credit Reestimates, the levels shown in the 2017 Appropriation column reflects the 6.9 percent reduction that went into effect on 

October 1, 2016, and the levels shown in the 2018 Annualized CR column reflects the 6.6 percent reduction that went into effect on October 1, 2017, pursuant to the Budget Control Act of 2011 (P.L. 112-25). 

The 2017 appropriation reflects the cancellation of $1.3 billion of unobligated balances and the 2019 President's Budget includes a proposed cancellation of $1.6 billion of unobligated balances in the Pell Grant program.

1 The 2017 Appropriation and 2019 President's Budget columns reflects the budget proposal to end the current Iraq and Afghanistan Service Grant program and consolidate it into the Pell Grant program. 

2019 President's Budget 

Category Compared to 2018 Annualized CR 

Code

2017 

Appropriation 

2018 

Annualized CR

2019 

President's 

Budget
STUDENT FINANCIAL ASSISTANCE

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Summary of Request

A full-year fiscal year 2018 appropriation was not enacted at the time the fiscal year 2019 

Budget was prepared; therefore, the Budget assumes the Department is operating under the 

Continuing Appropriations Act, 2018 (Division D of P.L. 115–56, as amended). The amounts 

included for fiscal year 2018 reflect the annualized level provided by the continuing resolution.

The fiscal year 2019 Budget request will provide $129.5 billion in new grants, loans, and workstudy assistance to help students pay for postsecondary education and compete for new jobs in 

the expanding economy. Overall, funds requested for all programs in the Student Financial 

Assistance account would provide $30.4 billion in aid1 and 7.8 million student aid awards. The 

2019 Budget takes steps to redirect and expand federal student aid to students with the most 

need so they can obtain the skills and education required in today’s workforce. 

The total 2019 Budget proposed for the Student Financial Assistance (SFA) account is 

$30.1 billion, approximately $1.2 billion lower than the FY 2018 Annualized Continuing 

Resolution level (CR level). The Budget request includes a discretionary request of $22.6 billion: 

$22.4 billion for Pell grants and $200 million for Federal Work-Study (FWS). Nearly $7.5 billion 

in mandatory funds are provided in the 2019 Budget for the Pell Grant program.

The Administration’s 2019 Budget proposal protects Pell Grant funding in fiscal year 2019 and 

ensures the program remains on a stable footing, while also proposing to rescind $1.6 billion in 

unobligated discretionary funds from prior years. Under the 2019 Budget proposal, the Pell 

Grant maximum award in award year 2019-20 will be $5,920, the same level as the previous 

award year. The Budget also proposes to expand Pell Grant eligibility to institutions that offer 

high-quality short-term programs that provide students with a credential, certification, or license 

in a high-demand field.

The 2019 Budget would also reform campus-based programs by focusing limited resources on

bolstering effective workforce development opportunities for students with the most need. The 

2019 Budget proposes to reduce the funding of the FWS program to $200 million in fiscal year

2019, a reduction of $783 million, or 79% compared to the fiscal year 2018 annualized CR level.

The Budget also proposes to reform the FWS program to support workforce and career-oriented 

training opportunities for low-income undergraduate students who can benefit the most. The 

2019 Budget would also save $728 million in fiscal year 2019 by eliminating the Supplemental 

Education Opportunity Grant (SEOG) program, which currently allows institutions to provide 

grant aid to students that do not always have the greatest need for assistance and is duplicative 

of the better-targeted Pell Grant program.

The 2019 program-specific funding information and policy proposals, as well as program 

performance information that applies to all student assistance programs, are discussed in the 

Student Aid Overview.

1 Total aid available is based on new budget authority and any required matching funds, less allowable 

administrative costs.
STUDENT FINANCIAL ASSISTANCE

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Federal Pell grants

(Higher Education Act of 1965, Title IV, Part A, Subpart 1)

(dollars in thousands)

FY 2019 Authorization: To be determined

Budget authority1

Period of fund availability:

2018 

Annualized CR 2019

Change from

Annualized CR

Program funds: 

Discretionary appropriation $22,322,722 $22,475,352 +$152,630

Mandatory appropriation 5,977,000 6,103,000 +126,000

Mandatory appropriation for 

discretionary program costs2 1,382,000 1,383,000 +1,000

Subtotal, current year funding 29,681,722 29,961,352 +279,630

Pell Grant program costs 29,658,000 30,212,000 +554,000

1 Table reflects discretionary budget appropriations and mandatory budget authority in support of program 

costs for each fiscal year.

2 The Higher Education Act (HEA) provides $1,409,000 thousand in mandatory funding to be used for 

discretionary program costs in FY 2019. The budget proposes to use $26,000 thousand of this funding to 

support student aid policy proposals included in the Budget.
STUDENT FINANCIAL ASSISTANCE

Federal Pell Grants

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PROGRAM DESCRIPTION

The Federal Pell Grant program helps ensure access to postsecondary education for low- and 

moderate-income undergraduate students by providing grants that help meet postsecondary 

education costs. The program also promotes lifelong learning by providing resources so that

low- and moderate-income adults now in the workplace can return to school to upgrade their 

skills.

The Department provides funds to participating institutions to deliver aid to all students at the 

institution who are eligible for a Pell Grant. Unlike Campus-Based Programs (Supplemental 

Education Opportunity Grants, Work-Study), a student’s eligibility is not dependent on the 

availability of funds awarded to the institution.

A Pell Grant is the foundation of a student’s financial aid package, to which other forms of aid 

are added. The amount of a student’s Pell Grant is dependent on the student’s “expected family 

contribution” (EFC), cost of education, whether the student attends school full time or part time, 

and whether the students’ program is a full academic year in length or less. Pell Grant 

disbursements are made to a student at least once every term during the award year or at the 

beginning and mid-point for programs without terms.

Budget authority in the Pell Grant program is available for 2 fiscal years; for example, funds 

become available for obligation on October 1 of the fiscal year in which they are appropriated 

and remain available through September 30 of the following fiscal year. Funds proposed for

fiscal year 2019 would be used for grants in the 2019-20 award year, which runs from July 1, 

2019, through June 30, 2020. If Pell Grant costs for a given academic year exceed the 

corresponding appropriation, the Department uses the next fiscal year’s appropriation to cover 

the full cost.

Recent and projected funding: The Pell Grant program is the single largest source of grant aid 

for postsecondary education and helps ensure low-income students can afford higher education 

and successfully attain a postsecondary credential. In 2019, nearly 7.6 million students are 

expected to receive Pell Grant awards up to $5,920. The program operates as an entitlement to 

eligible students once the maximum grant, award rules, and payment schedule are established.

The Higher Education Act does not provide for the denial of an award to any student who meets 

the qualifying conditions, nor does it allow the Secretary to reduce any student’s award level.

Mandatory funding: The College Cost Reduction and Access Act (CCRAA) authorized 

mandatory funding to support increases to the Pell maximum award set in each fiscal year’s 

appropriations act. The Health Care and Education Reconciliation Act (HCERA) amended that 

provision and increased the maximum award by $690 for award years 2010-2011 through 2012-

2013, and by the Consumer Price Index (CPI) from 2013 to 2017. Absent congressional action, 

the add-on award amount for award year 2018-19 and future years will not be inflated by the 

CPI and will remain at the award year 2017-2018 level.

Pell Grant program scoring rule: The congressional budget resolution for fiscal year 2006 

included a rule under which appropriations bills for the Pell Grant program are scored by the 

Congressional Budget Office for the estimated budget authority needed to fund the program for 
STUDENT FINANCIAL ASSISTANCE

Federal Pell Grants

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that year, or the requested budget authority, whichever is greater. If the appropriation exceeds 

the program cost as estimated at the beginning of the subsequent fiscal year, any surplus is 

available to reduce the appropriation needed to support that subsequent year’s program costs.

Conversely, if the appropriation is lower than the updated estimated program cost, the 

difference is automatically scored against the subsequent year’s appropriation.

Given the nature of the program, it is reasonable to consider Pell Grants an individual 

entitlement for purposes of budget analysis and enforcement. Congress has chosen to continue 

treating the portion funded in annual appropriations acts as discretionary, continuing the scoring 

of budget authority for Pell Grants against the appropriations allocations established annually 

under section 302 of the Congressional Budget Act. Similar to the 2018 Budget, this Budget 

presents the portion of Pell Grants provided in the annual appropriations act as discretionary 

funding.

Need analysis formula: The need analysis formula for the Title IV need-based student aid

programs, stipulated in the Higher Education Act, determines financial eligibility for Pell Grants 

and is applied uniformly to all applicants. This formula determines a student’s EFC. The 

fundamental elements in the formula are the student’s (and in the case of dependent students,

their parents’) income and assets (excluding the value of the family’s home or farm), the family’s

household size, and the number of family members (excluding the student’s parents) attending 

postsecondary institutions. The EFC is the sum of (1) a percentage of net income (remaining 

income after subtracting allowances for taxes and basic living expenses), and (2) a percentage 

of net assets (assets remaining after subtracting an asset protection allowance). Different 

assessment rates and allowances are used for dependent students, independent students, and 

independent students with dependents. For award year 2018-19, the income threshold at which 

a dependent student receives an automatic zero EFC determination is $25,000.

Institutional participation: Approximately 4,800 postsecondary institutions currently participate in 

the Pell Grant program. Institutions that lose their eligibility to participate in the loan programs 

due to high default rates are also precluded from participation in the Pell Grant program.

Student participation: Students may use their grants at any participating postsecondary

institution. Pell Grants are disbursed to the student through the institution. The Pell Grant 

program is the largest source of grant aid to students under the Higher Education Act, with 

approximately 39 percent of all undergraduates receiving a Pell Grant.

Recipients must be undergraduates and cannot have received a bachelor’s degree previously 

(with the exception of certain teacher certificate programs), and must be enrolled with the 

purpose of obtaining a degree or certificate at an eligible institution.

Students must also have a high school diploma (or its equivalent), or be homeschooled.

Students who did not have a high school diploma or were not homeschooled and first enrolled in 

an eligible program prior to July 1, 2012, may receive a Pell Grant by meeting one of the abilityto-benefit (ABT) alternatives. These alternatives include: (1) passing an independently 

administered Department-approved ability-to-benefit test; (2) completing at least 6 credit hours 

or 225 clock hours that are applicable toward a degree or certificate offered by the institution; or 

(3) completing a State process approved by the Secretary of Education.
STUDENT FINANCIAL ASSISTANCE

Federal Pell Grants

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Students who did not have a high school diploma or were not homeschooled and first enrolled in 

an eligible program on or after July 1, 2012, can only become eligible through one of the ABT 

alternatives described above if they are enrolled in an eligible career pathway program as 

defined in section 484(d)(2) of the HEA. 

Less than full-time students are eligible for pro rata awards based on their enrollment status. As 

of July 1, 2012, students are eligible for Pell Grants for a maximum of 12 semesters (or its 

equivalent) of full-time enrollment.

A student in default on a loan made under any Title IV HEA loan program, or who owes an 

overpayment on any other previously received Federal student aid, may not receive additional 

funds under the program unless he or she repays the debt in full, or makes satisfactory 

repayment arrangements with the holder of the debt.

Annual award amount: The annual award amount may vary from the statutory minimum 

payment up to the maximum authorized by statute for the academic year. The Higher Education 

Opportunity Act of 2008 (HEOA) enacted a minimum payment of 10 percent of the appropriated 

maximum award. For example, in award year (AY) 2017-18, the minimum is $592. Students 

who do not qualify for at least 10 percent of the maximum grant do not receive a Pell award.

Appropriations acts set annual maximum award levels. The 2018 Annualized CR level supports 

a maximum award of $4,860 in award year 2018-19.

1 With the mandatory add-on award

established by the HCERA, the maximum award will remain at $5,920 for award year 2018-19.

The aggregate Pell Grant award is the lesser of: 

• The maximum award (as set in annual appropriations acts) plus the additional amount 

provided by mandatory funds, minus the EFC, or

• The student’s cost of attendance minus the EFC.

1 Although the 2018 Annualized CR does not specify the discretionary maximum award level for award 

year 2018-19, the discretionary funding level provided for FY 2018 supports a discretionary maximum 

award of $4,860 in award year 2018-19.
STUDENT FINANCIAL ASSISTANCE

Federal Pell Grants

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Cost of attendance: For purposes of determining the Pell Grant award, the postsecondary 

institution establishes the cost of attendance, using the following cost items: 

• Tuition and fees;

• An allowance for books, supplies, transportation, dependent care, and miscellaneous 

expenses, including a reasonable allowance for the documented rental or purchase of a

personal computer;

• Living allowances of: 

o The actual amount charged by the institution for room and board for students living at 

school,

o An amount determined by the institution for students without dependents living at home 

with parents, and

o For all other students, an amount based on the expenses reasonably incurred for room 

and board.

The cost of attendance for less-than-half-time students includes: tuition and fees; an allowance 

for books, supplies and transportation; and dependent care.

Financial aid administrator discretion: The Higher Education Act stipulates financial aid 

administrators may, on the basis of adequate documentation and on a case-by-case basis, 

adjust a student’s Pell Grant award by changing the cost of attendance or the value of data 

elements used to calculate the EFC to reflect “special circumstances,” such as the following: 

• Tuition expenses at an elementary or secondary school;

• Medical or dental expenses not covered by insurance;

• Unusually high child care costs;

• Recent unemployment of an independent student or a family member;

• Changes in a student’s housing status resulting in homelessness;

• The number of parents enrolled at least half-time in a degree or certificate or other program 

leading to a recognized educational credential at an institution participating in any of the 

Title IV programs; or

• Other changes in a family’s income, assets, or a student’s status.

Institutional payments: The HEA provides for payment to institutions of $5 per Pell Grant 

recipient to reimburse institutions for a share of the cost of administering the Pell Grant 

program. Funds for these payments are paid from the Pell Grant appropriation. In award year 

2018-19, these payments will total $37 million.
STUDENT FINANCIAL ASSISTANCE

Federal Pell Grants

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Because of the structure of the Pell Grant program, annual funding levels may not equal annual 

expenditures. Discretionary and mandatory funding levels for the past 5 fiscal years were: 

Fiscal Year (dollars in thousands)

2014.............................................................. ..........28,201,8211

2015.............................................................. ..........27,628,2852

2016.............................................................. ..........27,315,7133

2017.............................................................. ..........29,475,7524

2018.............................................................. ..........29,681,7225

1 Includes $4,835 million in mandatory funds to increase maximum award by $870 and $588 million in 

additional mandatory funds provided in legislation to reduce discretionary need. 2 Includes $5,153 million in mandatory funds to increase maximum award by $915.

3 Includes $4,840 million in mandatory funds to increase maximum award by $965. 4 Includes $5,680 million in mandatory funds to increase maximum award by $1,060 and $1,320 million in 

additional mandatory funds provided in legislation to reduce discretionary need.

5 Includes $5,977 million in mandatory funds to increase maximum award by $1,060 and $1,382 million in 

additional mandatory funds provided in legislation to reduce discretionary need.

FY 2019 BUDGET REQUEST

The Administration’s 2019 Budget requests $22.4 million in discretionary funding for the Pell 

Grant program, an increase of $153 million over the 2018 Annualized CR level, to restore 

funding to the fiscal year 2017 level. This discretionary request, plus $7.5 billion in mandatory 

funding, establishes the total fiscal year 2019 Pell funding level at $29.9 billion. The mandatory 

request supports an add-on award of $1,060 to the base maximum award of $4,860, resulting in 

a total maximum award of $5,920 in award year 2019-20.

The Budget proposes to expand Pell Grant eligibility to institutions that offer high-quality, shortterm programs that provide students with a credential, certification, or license in a high-demand 

field. Students often face many obstacles in choosing the best education option available for 

them. Students that attend some postsecondary programs are not eligible to receive federal 

student aid due to time and program length requirements. Federal law and regulations should 

be updated to facilitate, not impede, students from acquiring the skills needed in today’s 

workforce. This proposal would help low-income or out-of-work individuals access training 

programs that provide them with the skills needed to secure well-paying jobs in high-demand 

fields more quickly than traditional 2-year or 4-year degree programs.

The 2019 Budget includes a $1.6 billion cancellation of unobligated balances in the Pell Grant 

program. In recent years, enrollment and costs have continued to decline as the economy has 

improved, and funding provided previously has lasted longer than anticipated. With the 

cancellation of unobligated balances in fiscal year 2019 and expanded benefits to students 

enrolling in short-term training programs, the program is still expected to have sufficient 

discretionary funds until 2024. A cancellation of unobligated balances in fiscal year 2018, such 

as that proposed in the 2018 Budget, could bring this date forward by one to two years.
STUDENT FINANCIAL ASSISTANCE

Federal Pell Grants

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The 2019 Budget request for this program is best understood in the context of the 

Administration’s proposals for the student aid programs as a whole. Accordingly, program 

specific funding information and policy proposals also are discussed in the Student Aid 

Overview.

PELL GRANT PROGRAM HISTORICAL DATA

Applicant and Recipient Growth: 

The graphs on the following pages show the latest applicant, recipient, and aid available trends 

for the Pell Grant program. Applicants are estimated at 16.3 million for award year 2019-20, or 

an increase of 400,000 compared to award year 2018-19. Recipients are estimated at 7.6

million in award year 2019-20, or an increase of 200,000 over award year 2018-19.

Many factors affect applicant growth, including demographic trends and changes in economic 

conditions, such as labor market demands. These factors, combined with efforts in recent years 

to streamline the application process, such as the Data Retrieval Tool (DRT) and the ability to 

report prior-prior year tax information, may contribute to an increase in applicants in the next few 

years. Factors affecting recipient growth include family incomes, need analysis, college costs, 

the level of the maximum Pell Grant award, and changes in applicant levels.

The following tables show program information consistent with actual, predicted, or requested 

funding levels.
STUDENT FINANCIAL ASSISTANCE

Federal Pell Grants

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Federal Pell Grants Applicant Trends1

Award Year Valid Applicants2 Applicant Growth:

Number

Applicant Growth:

Percent Change

2003-04 11,093,506 738,981 7.14%

2004-05 11,539,497 445,991 4.02%

2005-06 11,611,388 71,891 0.62%

2006-07 11,811,911 200,523 1.73%

2007-08 12,299,232 487,321 4.13%

2008-09 13,883,288 1,584,056 12.88%

2009-10 16,482,495 2,599,207 18.72%

2010-11 17,625,778 1,143,283 6.94%

2011-12 18,458,701 832,923 4.73%

2012-13 18,294,947 -163,754 -0.89%

2013-14 17,915,446 -379,501 -2.07%

2014-15 17,312,207 -603,239 -3.37%

2015-16 16,362,617 -949,590 -5.49%

2016-17 15,462,153 -900,464 -5.50%

2017-18 15,661,189 199,036 1.29%

2018-19 15,925,864 264,675 1.69%

2019-20 16,322,418 396,554 2.49%

1 Applicant data through award year (AY) 2016-17 are considered final and are taken from internal 

operational reports. Applicant data for award years 2017-18 through 2019-20 are estimates and are 

subject to change.

2 A valid applicant is an undergraduate student who submits an application with sufficient data to calculate 

an EFC and determine Pell Grant eligibility.
STUDENT FINANCIAL ASSISTANCE

Federal Pell Grants

O-16

NOTE: Applicants reflect those applying for all Federal student financial assistance, including those 

receiving only non-need based student loans.

Number of Recipients: 

Under current estimates, the 2019 level would support Pell Grant awards to 7.6 million

recipients.

Aid Available: 

Under current estimates, the Administration’s fiscal year 2019 proposal would provide $30.1

billion in Pell Grants to students.

0

3,000,000

6,000,000

9,000,000

12,000,000

15,000,000

18,000,000

1973-741977-781981-821985-861989-901993-941997-982001-022005-062009-102013-142017-18

Award Year

Pell Grant Program Historical Data

Applicants and Recipients (1973-74 to 2017-18)

Applicants Recipients
STUDENT FINANCIAL ASSISTANCE

Federal Pell Grants

O-17

Maximum award: 

The Administration proposes to maintain the base maximum award at $4,860 for award year 

2019-20 through discretionary and mandatory funding. The cost of providing the mandatory 

add-on that increases the maximum award to $5,920 in award year 2019-20 is funded by 

permanent mandatory indefinite funding as provided through HCERA.

Pell Maximum Award, Aid Available, and Recipients

Award 

Year

Maximum 

Award

Aid Available 

(dollars in millions) Recipients

2014-15 5,730 30,619 8,311,831

2015-16 5,775 28,555 7,657,845

2016-17 5,825 26,886 7,192,391

2017-18 5,920 29,031 7,168,000

2018-19 5,920 29,621 7,399,000

2019-20 5,920 30,174 7,632,000

$0

$3

$6

$9

$12

$15

$18

$21

$24

$27

$30

$33

$36

1973-741977-781981-821985-861989-901993-941997-982001-022005-062009-102013-142017-18

Award Year

Pell Grant Program Historical Data

Aid Available (1973-74 to 2017-18)

$ in Billions
STUDENT FINANCIAL ASSISTANCE

Federal Pell Grants

O-18

The following table shows the Pell Grant maximum award levels, budget authority by type, and 

program costs for fiscal years 2010 to 2019.

Pell Maximum Award Levels, Budget Authority, and Program Costs

(Dollars in Thousands, Except for Maximum Award Levels)

FY Maximum 

Award

Discretionary 

Budget 

Authority

Mandatory 

Budget 

Authority

Mandatory 

for 

Discretionary 

Budget 

Authority

Total 

Budget 

Authority

Program 

Cost

2010 $5,550 $17,495,000 $5,299,816 $0 $22,794,816 $35,699,000

2011 5,550 22,955,996 5,560,000 13,500,000 42,015,996 33,594,000

2012 5,550 22,824,000 4,950,000 13,795,000 41,569,000 32,084,000

2013 5,645 22,778,352 4,854,000 7,587,000 35,219,352 31,502,000

2014 5,730 22,778,352 4,835,469 588,000 28,201,821 30,661,000

2015 5,775 22,475,352 5,152,933 0 27,628,285 28,593,000

2016 5,825 22,475,352 4,840,361 0 27,315,713 26,922,0001

2017 5,920 22,475,352 5,680,000 1,320,000 29,474,752 29,067,0001

2018 5,920 22,322,722 5,977,000 1,382,000 29,681,722 29,658,0001

2019 5,920 22,475,352 6,103,000 1,383,000 29,961,352 30,212,0001

1 Estimate.

Distribution of Pell Grants by Student Status and Income Level: 

The tables below illustrate the distribution of Pell Grant funds to dependent and independent 

students at various income levels. In 2016-2017, approximately 69 percent of all Pell Grant 

recipients (including independent students) had incomes less than or equal to $30,000.

Distribution of Pell Grants to Dependent Undergraduates in 2016-17

Income Level Recipients Available Aid Average 

Award

0 - $6,000 465,885 $2,071,978,827 $4,447

$6,001 - $9,000 107,313 491,568,015 4,581

$9,001 - $20,000 738,272 3,367,852,993 4,562

$20,001 - $30,000 686,608 3,100,813,182 4,516

 $30,001 + 1,512,922 5,169,450,521 3,417

Total Dependent 3,511,000 14,201,663,538 4,045
STUDENT FINANCIAL ASSISTANCE

Federal Pell Grants

O-19

Independent students make up more than half of the students receiving assistance under the 

Pell Grant program. These recipients tend to be in the lowest income groups, as shown below.

Distribution of Pell Grants to Independent Undergraduates in 2016-17

Income Level Recipients Available Aid Average 

Award

0 - $ 1,000 572,560 $2,175,949,196 $3,800

$1,001 - $ 3,000 173,019 671,518,364 3,881

$3,001 - $ 6,000 255,124 976,424,702 3,827

$6,001 - $ 9,000 276,313 1,039,662,917 3,763

$9,001 - $15,000 638,692 2,288,730,966 3,583

$15,001 - $20,000 465,073 1,412,251,470 3,037

$20,001 - $30,000 554,477 1,737,139,489 3,133

 $30,001 + 745,742 2,369,015,358 3,177

Total Independent 3,681,000 12,670,692,462 3,442

All Undergraduates 7,192,000 26,872,356,000 3,736

Distribution of Pell Grants by Type of Institution: 

The table below shows the distribution of Pell Grants to students attending different types of 

institutions. In 2016-2017, approximately 39 percent of the total aid available for Pell Grants 

went to students attending Public 4-Year schools, and approximately 30 percent went to 

students attending Public 2-Year schools.

Over the lifetime of the Pell Grant program, the share of Pell Grant aid to proprietary institutions 

has changed significantly. For example, in the 2009-2010 award year, approximately 25 percent 

of total Pell Grant aid went to students at proprietary institutions; in the 2015-2016 and 2016-17

award years those figures were 17 and 15 percent, respectively.

Distribution of Pell Grants by Type of Institution in 2016-17

Institution 

Type Recipients Available Aid

Average 

Award

Percent of 

Pell Aid

Public 4-Year 2,715,465 $10,479,305,394 $3,859 39.0%

Public 2-Year 2,273,446 7,952,508,949 3,498 29.6

Private 1,088,534 4,390,258,161 4,033 16.3

Proprietary 1,114,555 4,050,283,496 3,634 15.1

Total 7,192,000 26,872,356,000 3,736 100.0
STUDENT FINANCIAL ASSISTANCE

Federal Pell Grants

O-20

The following two charts show, for the award years 2000-2001 to 2016-2017, total Pell 

recipients (in thousands) by type and control of institution; and the institutional share 

(percentage) of total Pell recipients.

 -

 500

 1,000

 1,500

 2,000

 2,500

 3,000

 3,500

 4,000

'00 '01 '02 '03 '04 '05 '06 '07 '08 '09 '10 '11 '12 '13 '14 '15 '16

Pell Recipients by Type & Control of Institution 

2 Yr Public 4-Year Public Proprietary Private

0%

5%

10%

15%

20%

25%

30%

35%

40%

'00 '01 '02 '03 '04 '05 '06 '07 '08 '09 '10 '11 '12 '13 '14 '15 '16

Pell Recipients by Institutional Share of Total

2-Year Public 4 Yr Public Proprietary Private
STUDENT FINANCIAL ASSISTANCE

Federal Pell Grants

O-21

PROGRAM OUTPUT MEASURES 

(dollars in thousands)

Output Measures 2017

2018

Annualized CR 2019

Recipients 7,168,000 7,399,000 7,632,000

Aid available to students1 $29,031,160 $29,621,005 $30,173,840

Maximum grant (in whole dollars) $5,920 $5,920 $5,920

Minimum grant (in whole dollars)2 $592 $592 $592

Average grant (in whole dollars) $4,050 $4,003 $3,954

1 Overall aid available reflects the estimated cost of the program minus administrative costs of $5 per 

recipient.

2 The minimum grant reflects the statutory minimum, but the actual minimum grant published by the 

Department may be slightly higher due to the calculation methodology used in the payment schedule.

PROGRAM PERFORMANCE INFORMATION

This section presents selected program performance information, including, for example, GPRA 

goals, objectives, indicators and performance data and targets; and an assessment of the 

progress made toward achieving program results. Achievement of program results is based on 

the cumulative effect of the resources provided in previous years and those requested in fiscal 

year 2019 and future years, as well as the resources and efforts invested by those served by 

this program.

Because the Federal Pell Grant program account relies on the same performance measures, 

strategies, and program improvement activities that apply to all the student financial assistance 

grant programs, Pell program performance is discussed in the Student Aid Overview and is 

not repeated here.
STUDENT FINANCIAL ASSISTANCE

O-22

Federal supplemental educational opportunity grants

(Higher Education Act of 1965, Title IV, Part A, Subpart 3)

(dollars in thousands)

FY 2019 Authorization: 01

Budget authority:

2018

Annualized CR 2019

Change from

Annualized CR

$728,151 0 -$728,151

1 The GEPA extension applies through September 30, 2015; reauthorizing legislation is not sought in 

fiscal year 2019.

PROGRAM DESCRIPTION

The Federal Supplemental Educational Opportunity Grant (SEOG) program provides needbased grant aid to eligible undergraduate students to help reduce financial barriers to 

postsecondary education. Federal funding allocations are awarded to qualifying postsecondary 

institutions under a statutory formula. Unlike the Pell Grant program, the SEOG program is 

operated by institutional financial aid administrators who have substantial flexibility in 

determining student awards.

The funding provided for the SEOG program is available for 2 years. Funds become available 

for obligation on October 1 of the fiscal year in which they are appropriated and remain available 

through September 30 of the following fiscal year. Funds available for the current fiscal year 

2018 will be used for the 2018-19 award year, which runs from July 1, 2018, through June 30, 

2019.

Institutional participation: Roughly 3,700 postsecondary institutions receive funds under the 

SEOG program. Under the statutory formula, funds are distributed to institutions first on the 

basis of the institution's fiscal year 1999 SEOG program base guarantee and pro rata share (a 

hold harmless basis), and then on the basis of the aggregate need of the eligible undergraduate 

students in attendance. The current “hold harmless” provision distorts the allocation of funding 

among institutions so that certain institutions receive more funds than if the funds were solely 

distributed based on their students’ financial need.

Institutional matching: Participating institutions are required by statute to contribute at least 

25 percent of the SEOG award amounts. The institutional share can be met using the 

institution's own resources, State grants, or funds from foundations or other charitable

organizations.

Student participation: Students qualify for grants of up to $4,000 by demonstrating financial 

need under the needs analysis formula used for Federal student aid. Institutions must give first 

priority for awards to students with demonstrated “exceptional need” (students with the lowest 

Expected Family Contributions (EFCs) at the institution) who are also Pell Grant recipients. 
STUDENT FINANCIAL ASSISTANCE

Federal supplemental educational opportunity grant

O-23

Remaining awards are then available for students with exceptional need who are not Pell Grant 

recipients. In addition, if any part of the institution’s SEOG allocation determination to students 

is based, in part, on the financial need demonstrated by students who are independent or 

attending the institution less-than-full-time, then a reasonable portion of the allocation must be 

made available to such students.

Recipients must be undergraduates, cannot have received a bachelor’s degree, and must be 

enrolled with the purpose of obtaining a degree or certificate at an eligible institution.

Approximately 9 percent of undergraduates receive SEOG awards.

Recipients must also have a high school diploma (or its equivalent) or be homeschooled.

Students who did not have a high school diploma or were not homeschooled and first enrolled in 

an eligible program prior to July 1, 2012, may receive a SEOG funds by meeting one of the 

ability-to-benefit (ABT) alternatives. These alternatives include: (1) passing an independently 

administered Department-approved ability-to-benefit test; (2) completing at least 6 credit hours

or 225 clock hours that are applicable toward a degree or certificate offered by the institution; or 

(3) completing a State process approved by the Secretary of Education.

Students who did not have a high school diploma or were not homeschooled and first enrolled in 

an eligible program on or after July 1, 2012, can only become eligible through one of the ABT 

alternatives described above if they are enrolled in an eligible career pathway program as 

defined in section 484(d)(2) of the HEA. 

Students already in default on a Federal student loan or who owe an overpayment on any other 

previously received Federal student aid may not receive a SEOG unless they repay the debt in 

full, or makes satisfactory repayment arrangements.

Institutional administrative provisions: 

• Administrative costs. Each institution’s administrative cost allowance is based upon its 

expenditures for both campus-based programs (SEOG, and Work-Study). An institution may 

use up to 5 percent of the first $2.75 million of its program expenditures; plus up to 4 percent 

of expenditures greater than $2.75 million but less than $5.5 million; and up to 3 percent of 

expenditures greater than $5.5 million during an award year to meet administrative costs 

associated with these programs.

• Transferability of funds. An institution may transfer up to 25 percent of Work-Study funds to 

SEOG. Up to 10 percent of an institution’s SEOG funds may, at the discretion of the 

institution, be used for expenditures for the preceding fiscal year, and up to 10 percent of an 

institution’s SEOG funds may remain available for the next fiscal year.

• Reallocation of funds. Excess funds available because of under-utilization by institutions are 

reallocated to other institutions in accordance with program regulations. An institution 

returning more than 10 percent of its allocation will have its subsequent allocation reduced 

by the same amount. Under The Hurricanes Harvey, Irma, and Maria Education Relief Act of 

2017 (Hurricane Education Relief Act of 2017), the Secretary was provided authority to 
STUDENT FINANCIAL ASSISTANCE

Federal supplemental educational opportunity grants

O-24

waive reallocation rules; excess SEOG funds were reallocated to institutions that were 

directly affected by the 2017 hurricanes or located in disaster areas.

Funding levels for the past 5 fiscal years were: 

Fiscal Year (dollars in thousands)

2014.............................................................. ................733,130

2015.............................................................. ................733,130

2016.............................................................. ................733,130

2017.............................................................. ................733,130

2018.............................................................. ................728,151

FY 2019 BUDGET REQUEST

Currently, Federal Supplemental Educational Opportunity Grants (SEOG) awards are not 

optimally allocated based on a student’s financial need, despite being a need-based program. 

Although the Higher Education Act (HEA) requires that participating institutions give priority in 

awarding SEOG funds to Pell-eligible students, there is no requirement that the size of these 

awards be tied to the need of the student. As a result, institutions are given the discretion to 

provide larger SEOG awards to students who do not exhibit the highest need. As shown in the 

tables below, the average SEOG award increased as income levels increased for dependent 

students. Furthermore, provisions in the SEOG funding allocation formula also distort the 

targeting of aid. For example, according to the distribution tables for Pell Grant aid presented 

earlier, about 69% of Pell recipients attend public 4-year or public 2-year institutions, while only 

57% of SEOG funds go to these institutions. Moreover, the SEOG program is part of a complex 

and confusing array of federal aid programs that could benefit from better targeting of aid to 

needy students. In award year 2018-19, the Department of Education is expected to pay 

institutions more than $13.9 million dollars to administer the SEOG program—dollars that could 

be better targeted directly to needy students.

The 2019 Budget Request proposes to eliminate the SEOG program beginning in award year 

2019-20, which would result in a savings of $728 million compared to the 2018 Annualized 

CR level.

The 2019 Budget Request for this program is best understood in the context of the 

Administration’s proposals for the student aid programs as a whole. Accordingly, student 

assistance policy proposals are discussed in greater detail in the Student Aid Overview.
STUDENT FINANCIAL ASSISTANCE

Federal supplemental educational opportunity grants

O-25

PROGRAM OUTPUT MEASURES

(dollars in thousands)

Output Measures 2017

2018

Annualized CR 2019

Recipients 1,530,180 1,519,464 0

Aid available to students1 $992,875 $986,132 $0

Average award (in whole dollars) $649 $649 $0

1 Aid available includes budget authority, institutional matching funds, transfers from Perkins Loans and 

Federal Work-Study programs, minus administrative costs.

PROGRAM PERFORMANCE INFORMATION

This section presents selected program performance information, including, for example, GPRA 

goals, objectives, measures, and performance targets and data; and an assessment of the 

progress made toward achieving program results. Achievement of results is based on the 

cumulative effect of the resources provided in previous years and those requested in fiscal year 

2017 and the future as well as the resources and efforts invested by institutions.

Because the programs in the Student Financial Assistance account rely on the same 

performance data, performance measures, strategies, and program improvement activities that 

apply to all of the programs, that information is discussed in the Student Aid Overview and is

not repeated here.

Distribution of SEOG Funds by Student Status and Income Level: 

The following tables (structured to compare across the programs in the SFA account) show the 

distribution of SEOG funds to dependent and independent students at various income levels in 

2015-2016. These tables include the most recent distributional data available, which may not 

match directly with the data provided in the Program Output Measures section.

In 2015-2016, 68 percent of dependent SEOG recipients had family income levels under 

$30,000 and 74 percent of independent SEOG recipients had family income levels under 

$20,000.
STUDENT FINANCIAL ASSISTANCE

Federal supplemental educational opportunity grants

O-26

Distribution of SEOG to Dependent Undergraduates in 2015-16

Income Level Recipients Available Aid Average 

Award

0 - $5,999 119,801 $88,467,073 $738

$6,000 - $11,999 73,999 56,526,938 764

$12,000 - $23,999 221,628 172,320,208 778

$24,001 - $29,999 91,655 74,434,234 812

$30,000 + 235,138 202,162,879 860

Total Dependent 742,221 593,911,332 800

Distribution of SEOG to Independent Undergraduates in 2015-16

Income Level Recipients Available Aid Average 

Award

0 - $ 1,999 197,245 $106,050,391 $538

$2,000 - $ 3,999 50,665 28,203,081 557

$4,000 - $ 7,999 101,886 54,936,349 539

$8,000 - $11,999 105,384 53,191,599 505

$12,000 - $15,999 70,667 32,915,699 466

$16,000 - $19,999 59,574 27,133,417 455

$20,000 + 202,538 96,533,010 477

Total Independent 787,959 398,963,546 506

All Undergraduates 1,530,180 992,874,878 649

Distribution of SEOG Funds by Type of Institution: 

The distribution of SEOG assistance to institutions is controlled by a statutory formula. The 

distribution of SEOG across different types of institutions has remained relatively constant over 

time due to this formula and the base guarantee. The distribution of aid by institution type has 

remained relatively constant over the last 5 years.

The following table shows the distribution of SEOG to students attending different types of 

institutions in 2015-2016. The majority of funding goes to students attending public institutions.
STUDENT FINANCIAL ASSISTANCE

Federal supplemental educational opportunity grants

O-27

Distribution of SEOG by Type of Institution in 2015-16

Institution 

Type Recipients Available Aid

Average 

Award

Percent of 

SEOG Aid

Public 4-Year 471,514 $342,112,492 $726 34.5%

Public 2-Year 398,276 171,176,007 430 17.2

Private 356,025 360,183,227 1,012 36.3

Proprietary 304,365 119,403,152 392 12.0

Total 1,530,180 992,874,878 649 100.0

NOTE: Percentages may not total to 100 percent due to rounding.
STUDENT FINANCIAL ASSISTANCE

O-28

Federal work-study

(Higher Education Act of 1965, Title IV, Part C)

(dollars in thousands)

FY 2019 Authorization: To be determined1

Budget authority:

Period of fund avail 2018

Annualized CR 2019

Change from

Annualized CR

$983,007 $200,000 -$783,007

1 The GEPA extension applies through September 30, 2015; reauthorizing legislation is sought for FY 

2019.

PROGRAM DESCRIPTION

The Federal Work-Study (FWS) program ensures access to postsecondary education and 

lifelong learning by assisting needy undergraduate and graduate students in financing 

postsecondary education costs through part-time employment. Federal funds are distributed to 

qualifying institutions whose financial aid administrators select eligible students with financial 

need for employment. Students may be employed by the institution; by a Federal, State, or local 

public agency or private nonprofit organization; or by a private for-profit organization.

The funding for the FWS program is available for 2 fiscal years. Funds become available for 

obligation on October 1 of the fiscal year in which they are appropriated and remain available 

through September 30 of the following fiscal year. Funds requested for fiscal year 2019 would 

be used for the 2019-20 award year, which runs from July 1, 2019 through June 30, 2020.

Institutional participation: Approximately 3,200 institutions participate in the FWS program.

Funds are distributed to institutions based on a statutory formula. The formula starts with the 

institution's fiscal year 1999 FWS program base guarantee and pro rata share, and bases the 

allocation on the aggregate need of the eligible undergraduate students in attendance. The 

FWS program is administered by institutional financial aid administrators who have substantial 

flexibility in determining student awards.
STUDENT FINANCIAL ASSISTANCE

Federal work study

O-29

If an institution is a proprietary school employing its own students, this employment must be: (1) 

on campus, except that at least 7 percent of the total funds granted must be used to 

compensate students employed in community service activities; (2) related, to the maximum 

extent practicable, to the student’s educational objectives; and (3) related to providing student 

services. The employment tasks of FWS program students, however, must not involve the 

solicitation of potential students to enroll in the school.

Institutional matching: In general, participating institutions or other employers must contribute at 

least 25 percent of a student’s part-time earnings (or 50 percent in the case of private-for-profit 

employers). The Federal share may be up to 90 percent for students employed at a private 

nonprofit organization or a Federal, State, or local public agency that would otherwise be unable 

to afford the costs of employing those students. The 90 percent Federal share is limited to no 

more than 10 percent of the students paid under the FWS program; in addition, the school may 

not own, operate, or control the organization, and the school must select the organization or

agency on a case-by-case basis.

Student participation: Students qualify for FWS program awards by demonstrating financial 

need under the statutory need analysis system for the Federal student financial assistance 

programs. Hourly earnings must not be less than the current Federal minimum wage.

Approximately 7 percent of undergraduates participate in the FWS program.

In addition, if the institution’s allocation is based in part on the financial need demonstrated by 

independent students or students attending the institution less-than-full-time, then a reasonable 

portion of the allocation must be made available to such students.

Recipients must be enrolled with the purpose of obtaining a degree or certificate at an eligible 

institution. Students must also have a high school diploma (or its equivalent), or be 

homeschooled. Students who did not have a high school diploma or were not homeschooled 

and first enrolled in an eligible program prior to July 1, 2012, may receive FWS program funds 

by meeting one of the ability-to-benefit (ABT) alternatives. These alternatives include: (1) 

passing an independently administered Department-approved ability-to-benefit test; (2) 

completing at least 6 credit hours or 225 clock hours that are applicable toward a degree or 

certificate offered by the institution; or (3) completing a State process approved by the Secretary 

of Education.

Students who did not have a high school diploma or were not homeschooled and first enrolled in 

an eligible program on or after July 1, 2012, can only become eligible through one of the ABT 

alternatives described above if they are enrolled in an eligible career pathway program as 

defined in section 484(d)(2) of the HEA. 

Students who have defaulted on a Federal student loan or who owe an overpayment on any 

other previously received Federal student aid, however, may not receive additional funds under 

the program unless they repay the debt in full, or make satisfactory repayment arrangements 

with the holder of the debt.

Institutional administrative provisions: Institutions may use their allocations to support a variety 

of Work-Study activities, including: 
STUDENT FINANCIAL ASSISTANCE

Federal work study

O-30

• Community service. An institution must use at least 7 percent of its Federal allocation for 

payments to students employed in community service activities. Other Work-Study jobs that 

qualify as community service activities include community-accessible childcare and 

assistance for disabled students. The HEOA expanded the definition of community service 

to include emergency preparedness and response. The eligible institution, at its discretion, 

may count any contribution made by the employer toward the non-Federal share of the 

student’s compensation.

• Tutoring and literacy activities. An institution must include at least one tutoring or family 

literacy project as part of its community service activities. Under this requirement, priority is 

to be given to the employment of Work-Study recipients as reading tutors in schools that are 

participating in a reading reform project designed to train teachers to teach reading on the 

basis of scientifically based research on reading, and which is funded under the Elementary 

and Secondary Education Act of 1965, as amended. In 2015-16, the last year data was 

collected, almost 39,000 Work-Study students were employed as reading tutors.

• Private sector. An institution may use up to 25 percent of its Work-Study allocation to match 

earnings of students working for private for-profit organizations. Students must, to the 

maximum extent practicable, be placed in jobs that are academically relevant to their course 

of study. FWS program funds may not be used to pay any employee who would otherwise 

be employed by the private organization.

• Job Location and Development. An institution may use up to 10 percent of its FWS program

allocation, or a maximum of $50,000, whichever is less, for administrative expenses 

associated with the establishment or expansion of a Job Location and Development (JLD) 

program. This program locates and develops off-campus full- or part-time jobs or community 

service jobs for currently enrolled students. The Federal share of the JLD program costs 

cannot exceed 80 percent.

• Work Colleges. A “Work College” is an institution that requires all resident students to 

participate in a work-learning program as an integral part of the institution’s educational 

philosophy. These colleges are authorized to receive special awards in addition to their 

regular FWS program allocations to support such programs. Work Colleges must match 

Federal allocations on a dollar-for-dollar basis. In addition, Work Colleges may transfer all of 

their regular FWS program allotments for use under the Work Colleges program.

• Administrative costs. Each institution’s administrative cost allowance is based upon its 

expenditures for all three campus-based programs, excluding the amount of Perkins loans 

assigned to the Department. Under a statutory formula, an institution may use up to 5

percent of the first $2.75 million of its program expenditures; plus up to 4 percent of 

expenditures greater than $2.75 million but less than $5.5 million; and up to 3 percent of 

expenditures greater than $5.5 million during an award year to meet administrative costs 

associated with these programs.

• Transferability of funds. An institution may transfer up to 25 percent of its allocation from 

Perkins Loans Federal Capital Contributions to SEOG or FWS (or both) and up to 25

percent of FWS to SEOG. Up to 10 percent of an institution’s FWS program funds may, at 
STUDENT FINANCIAL ASSISTANCE

Federal work study

O-31

the discretion of the institution, be used for expenditures for the preceding fiscal year. In 

addition, up to 10 percent of an institution’s FWS program funds may, at the discretion of the 

institution, remain available for the next fiscal year.

• Reallocation. If funds become available because of under-utilization by institutions, excess 

funds are reallocated only to other institutions that used at least 5 percent of their FWS 

program allocations to compensate students employed in tutoring in reading and family 

literacy activities in the preceding year. Reallocated funds must be used to support student 

employment in community service activities. Under the Hurricane Education Relief Act of 

2017, excess FWS were first allocated to institutions that were located in FEMA-declared 

disaster areas, and then to institutions that enrolled a significant number of students that live 

in the FEMA-declared disaster areas.

• Disasters. The Higher Education Opportunity Act added a provision under which an eligible 

institution located in an area affected by a major disaster, as determined by the Secretary, 

may make FWS payments to disaster-affected students, for the period of time (not to exceed

1 academic year) in which the students were prevented from fulfilling their FWS obligations 

due to the disaster. Payment may be made in an amount equal to or less than the amount a 

student would have been paid had the student been able to complete the work obligation 

necessary to receive Work-Study funds. The Hurricane Education Relief Act of 2017 

provided the Secretary authority to waive reallocation rules and to extend the deadline by 

which funds were reallocated in the campus-based programs due to Hurricanes Harvey, 

Irma, and Maria.

Funding levels for the past 5 fiscal years were: 

Fiscal Year (dollars in thousands)

2014.............................................................. ................974,728

2015.............................................................. ................989,728

2016.............................................................. ................989,728

2017.............................................................. ................989,728

2018.............................................................. ................983,007

FY 2019 BUDGET REQUEST

The Administration’s 2019 Budget proposes to reduce federal funds for the FWS program 

beginning in award year 2019-20 and significantly reform the program from a model that mostly

provides subsidized employment as a form of financial aid for higher income undergraduate and 

graduate students to one that supports workforce and career-oriented training opportunities for 

low-income undergraduate students. Under the Budget proposal, institutions could fund 

individual students through subsidized employment, paid internships, or other placements, 

provided they are career or academically relevant. Institutions could also fund broader programs 

serving multiple students that provide exposure to or build preparedness for careers. The 2019

Budget would also reform the allocation formula to focus scarce funds on institutions enrolling 

high numbers of Pell Grant recipients, while providing students with access to part-time 

employment that provides the training and skills to meet the needs of today’s workforce. As 

shown in the tables below, among dependent students, those with family incomes at or above
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$30,000 received 66% of FWS funds compared to 34% of FWS funds going to students with 

family incomes below $30,000. Independent students, who typically have lower family incomes, 

received 51% of all Pell Grant aid, but only received 18% of FWS funds.

The 2019 Budget requests $200 million for the FWS program, a reduction of $783 million 

compared to the 2018 Annualized CR level. The request will generate nearly $221.5 million in 

available aid to support more than 133,000 part-time career-oriented jobs for students, helping 

to meet the educational costs of undergraduate students and to expand their future employment 

prospects.

The 2019 Request for this program is best understood in the context of the Administration’s 

proposals for the student aid programs as a whole. Accordingly, policy proposals are discussed 

in greater detail in the Student Aid Overview.

PROGRAM OUTPUT MEASURES

(dollars in thousands)

Output Measures

2017

2018

Annualized CR 2019

Recipients 634,931 630,728 133,073

Aid available to students1 $1,096,080 $1,088,637 $221,491

Average award (in whole dollars) $1,726 $1,726 $1,664

1 Aid available includes budget authority, institutional matching funds, transfers from Perkins Loans and 

Federal Work-Study programs, minus administrative costs.

PROGRAM PERFORMANCE INFORMATION

This section presents selected program performance information, including, for example, GPRA 

goals, objectives, measures, and performance targets and data; and an assessment of the 

progress made toward achieving program results. Achievement of results is based on the 

cumulative effect of the resources provided in previous years and those requested in 2019 and 

future years, as well as the resources and efforts invested by those served by this program.

Because the programs in the Student Financial Assistance account rely on the same 

performance data, performance measures, strategies, and program improvement activities that 

apply to all of the programs, that information is discussed in the Student Aid Overview and is

not repeated here.

Distribution of Work-Study Funds by Student Status and Income Level: 

The following tables (structured to provide a common basis of comparison among the programs 

in the SFA account) illustrate the distribution of Work-Study funds to dependent students and 

the distribution to independent students at various income levels for 2015-2016. These tables 
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include the most recent distributional data available, which may not correspond directly with the 

data provided in the Program Output Measures section.

Distribution of Work-Study to Dependent Undergraduates in 2015-16

Income Level Recipients Available Aid Average 

Award

0 - $5,999 35,566 $59,527,748 $1,674

$6,000 - $11,999 22,106 38,508,671 1,742

$12,000 - $23,999 67,299 116,128,734 1,726

$24,001 - $29,999 32,585 55,322,190 1,698

$30,000 + 334,373 516,273,160 1,544

Total Dependent 491,929 785,760,503 1,597

Distribution of Work-Study to Independent Undergraduates and Graduates in 2015-16

Income Level Recipients Available Aid Average 

Award

0 - $ 1,999 28,596 $54,507,547 $1,906

$2,000 - $ 3,999 9,603 18,624,754 1,939

$4,000 - $ 7,999 16,197 33,540,008 2,071

$8,000 - $11,999 12,985 27,469,821 2,116

$12,000 - $15,999 8,687 18,077,794 2,081

$16,000 - $19,999 5,593 11,207,727 2,004

$20,000 + 16,323 31,962,772 1,958

Total 

Independent 97,984 195,390,423 1,994

Graduate Students 45,018 114,929,515 2,553

All Students 634,931 1,096,080,441 1,726

Distribution of Work-Study Funds by Type of Institution: 

The Work-Study program is a campus-based program, and the distribution of funds to 

institutions is controlled by a statutory formula. As a result, the distribution of Work-Study 

assistance across different types of institutions has remained relatively constant over time. The 

table below shows the distribution of Work-Study to students attending different types of 

institutions in 2015-2016.
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Distribution of Work-Study (WS) by Type of Institution in 2015-16

Institution 

Type Recipients Available Aid

Average 

Award

Percent of 

WS Aid

Public 4-Year 219,471 $412,182,917 $1,878 37.6%

Public 2-Year 68,592 142,752,037 2,081 13.0

Private 328,368 496,824,725 1,513 45.3

Proprietary 18,500 44,320,762 2,396 4.0

Total 634,931 1,096,080,441 1,726 100.0

NOTE: Percentages may not total to 100 percent due to rounding.

Community Service Activities: 

The Work-Study program has a long tradition of providing opportunities for students to perform 

community service activities. At least 7 percent of an institution's Work-Study allotment must be 

used to pay students employed in community service jobs, unless the institution obtains a 

waiver from the Department. Nationally, 17 percent of Work-Study funds are used for jobs in 

community service.

Participating colleges and universities must ensure that at least one eligible project provides 

services to both children and their parents. Allowable activities, such as family literacy 

programs, emphasize preparing parents to read to their own children.

The Department has waived the usual 25 percent institutional contribution, allowing Work-Study 

funds to pay up to 100 percent of the wages to support students who tutor children in 

mathematics, or reading, or who serve in family literacy programs.

Distribution of Work-Study Funds to Students in Community Service Activities: 

The table below shows the distribution of Work-Study assistance to students employed in 

community service activities in 2015-2016.

Distribution of Work-Study to Students in Community Service Activities by Type of 

Institution in 2015-16

Institution 

Type Recipients Available Aid

Average 

Award

Percent of 

WS Aid

Public 4-Year 40,751 $75,542,508 $1,854 40.6%

Public 2-Year 12,657 26,296,345 2,078 14.1

Private 52,779 77,356,397 1,466 41.6

Proprietary 2,963 6,766,843 2,284 3

Total 109,150 185,962,093 1,704 100.0

NOTE: Percentages may not total to 100 percent due to rounding.
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Iraq and Afghanistan service grants

(Higher Education Act of 1965, Title IV, Part A, Subpart 10)

(dollars in thousands)

FY 2019 Authorization: 0

Mandatory Budget Authority:

2018

Annualized CR 2019 Change

$463 0 -$463

PROGRAM DESCRIPTION

The Iraq and Afghanistan Service Grants (IASG) program provides non-need-based grants to

students whose parent or guardian was a member of the Armed Forces who died in Iraq or 

Afghanistan as a result of performing military service after September 11, 2001. Students are 

not required to be eligible for a Pell Grant in order to receive a Service Grant; however, the 

student must be 24 years old or younger; or, if older than 24, must have been enrolled in an 

institution of higher education at the time of the parent or guardian’s death.

Service Grants are equal to the maximum Pell Grant for a given award year, which is $5,920 in 

the 2017-18 award year. However, due to sequestration, IASG award amounts have been 

reduced in prior years and are subject to sequestration in the current year. Award amounts for 

any IASG first disbursed on or after Oct. 1, 2017, and before Oct. 1, 2018, will be reduced by 

6.6 percent, or $391 for a student receiving the maximum award. Service Grants are excluded 

from the total “estimated financial assistance” used to determine a student’s eligibility for other 

Title IV Federal financial aid. In combination with other student aid, however, the Service Grant 

may not result in a student’s awards exceeding their cost of attendance. As with Pell Grant

eligibility, students are limited to 12 semesters of full-time enrollment.

Funding levels for the past 5 fiscal years were: 

Fiscal Year (dollars in thousands)

2014.............................................................. .......................294

2015.............................................................. .......................370

2016.............................................................. .......................384

2017.............................................................. .......................401

2018.............................................................. .......................463

FY 2019 BUDGET PROPOSAL

The 2019 Budget proposes to move the Iraq and Afghanistan Service Grant program into the 

Pell Grant program to ensure the children of our fallen service members receive a full aid award, 

exempt from cuts due to sequestration, and without any other changes to the program’s benefits 

or eligibility. The 2019 Budget proposal would allow these students to receive the full, equivalent 
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Pell Grant (which is not subject to sequestration). The first IASG recipient awards were given in 

award year 2010-2011 to fewer than 1,000 recipients.

PROGRAM OUTPUT MEASURES

(dollars in thousands)

Output Measures 2017

2018

Annualized CR 2019

Recipients (1) (1)0

Aid available to students (dollars in 

thousands)2 $455 $490 $0

Maximum grant (whole dollars)3 $5,529 $5,529 $0

Average grant (whole dollars) $5,016 $5,015 $0

1 Recipients estimated to number fewer than 500.

2 Aid available is the amount of funding available for new IASG awards to students in any single academic 

year. This amount differs from budget authority because 1 fiscal year spans across 2 academic years. 

For instance, total aid available in FY 2018 is comprised of portions of both academic year 2017-2018

(ending June 30) and 2018-19 (beginning July 1). Amount of aid available in 2019 reflects Budget policy 

to move IASG to the Pell Grant program. In 2019, aid available is estimated to be $566 thousand.

3 Maximum grant amounts for 2017 and 2018 reflect impact of sequestration. The amount of the 

maximum grant in 2019 reflects Budget policy to move IASG to the Pell Grant Program.

PROGRAM PERFORMANCE INFORMATION

This section presents selected program performance information, including, for example, GPRA 

goals, objectives, measures, and performance targets and data; and an assessment of the 

progress made toward achieving program results. Achievement of results is based on the 

cumulative effect of the resources provided in previous years and those requested in 2019 and 

future years, as well as the resources and efforts invested by those served by this program.

Because the programs in the Student Financial Assistance account rely on the same 

performance data, when available, the Iraq and Afghanistan Service Grants performance 

measures, strategies, and program improvement activities will be discussed in the Student Aid 

Overview and not repeated here.
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Distribution of Iraq and Afghanistan Service Grant Funds by Type of Institution: 

The data provided in the table below shows the distribution of Iraq and Afghanistan service 

grants to students attending different types of institutions in award year 2016-2017.

Distribution of IASG by Type of Institution in 2016-17

Institution 

Type Recipients Available Aid

Average 

Award

Percent of 

IASG Aid

Public 4-Year 53 $238,679 $4,503 62%

Public 2-Year 10 34,647 3,465 9

Private 19 102,814 5,411 27

Proprietary 2 8,815 4,408 2

Total 84 384,955 4,583 100

NOTE: Percentages may not total to 100 percent due to rounding.