Sometimes referred to as “free college” programs, most are relatively new, sparked by the relentless rise in college costs and by a desire among state leaders to improve college access, especially for low-income students. Hundreds more free college programs have popped up at the local level, too. But a new review of 15 of these statewide programs, conducted by The Education Trust, finds that states vary wildly in how they define both “free” and “college.”

“I mean, I get paid to do this,” laughs Katie Berger, a senior analyst at the nonprofit advocacy group, “and it was very challenging for me to understand the nuances in a lot of these programs. … And if it’s hard for me to understand, I can’t imagine how challenging it is for low-income students and first-generation students to wrap their heads around this.”