Legislature Passes Fiscal Year 2025 Budget

$58B budget agreement provides for significant levels of investment in education, regional equity, and transportation

JULY 24, 2024

Last week, Representative Bill Driscoll Jr. (D-Milton) joined his colleagues in the Legislature in enacting a $58 billion budget for Fiscal Year 2025 (FY25), resolving differences between the versions of the budget passed by the House of Representatives and the Senate earlier this year. The FY25 conference committee report maintains fiscal responsibility while delivering historic levels of investment in every level of education, transportation regional equity, workforce development and health care, reflecting the Legislature’s ongoing commitment to delivering on affordability for residents and economic competitiveness for the Commonwealth.

“Included in this fiscally responsible $58 billion budget are appropriations taking specific action to strengthen many support systems that residents rely on, and enable the Commonwealth to be adaptable in finding resolutions against current struggles,” said Driscoll. “I am especially thrilled with the over $1 million specifically earmarked for the 7th Norfolk district, obtained through collaborative efforts between the Milton and Randolph delegation. Thank you, Mr. Speaker, Chair Michlewitz, members of this conference committee and my remaining colleagues for their dedicated work to develop, collaborate and present this final version of the budget.”

The 7th Norfolk district specifically benefits from a variety of earmarks. Investment in cultural organizations around the district include:

$25,000 for the Milton Art Center, and
$20,000 to the Forbes House Museum for renovations

Local public safety will be supported by:

$100,000 to the Randolph Fire Department
$40,000 to the Milton Police Department, and
$20,000 to the Randolph Police Department

Public health efforts will be prioritized through:

$100,000 for a Town of Randolph Social Worker, and
$70,000 to the Milton Council on Aging
Allocation to the Milton Substance Abuse Prevention Coalition,
Allocation to Health Empowered Youth Randolph

And to ensure continued upkeep and usage of one our favorite spots in the district, funding for Blue Hills includes:

$600,000 for the Blue Hills Trailside Museum
$100,000 for the Blue Hill Observatory and Science Center

Two additional Driscoll-sponsored amendments that support individuals and families who face specific challenges related to health, and access to educational opportunities were also included:

$200,000 to the Make-A-Wish Foundation of Massachusetts, as well as
A provision to set a maximum Special Education our-of-state tuition rate

“At the start of this legislative session I called for a ‘Student Opportunity Plan’ that would build on our landmark Student Opportunity Act and expand access to quality public education to all our residents from cradle to career. With the adoption of this FY25 conference report, which includes universal free community college and comprehensive early education and care reform and funding, I’m thrilled to say that Massachusetts now has that comprehensive plan that will provide hope and opportunity to so many,” stated Senate President Karen E. Spilka (D-Ashland). “This budget is a vote of confidence in every Massachusetts resident going to school, raising a family, and working to make ends meet—as well as strong blueprint for bring equity and opportunity to every region and resident of our state. I want to thank Chair Rodrigues, Vice Chair Friedman, Assistant Vice Chair Comerford, the committee, and all my Senate colleagues and staff for their thoughtful and collaborative work on this great budget, and our partners in the House that worked to bring this vision into reality.”

“This budget takes a fiscally responsible approach to making meaningful investments in areas of significant need. I’m proud of the fact that the FY25 budget allocates key funding to better support Massachusetts students and families, to increase access to affordable health care, and to provide for a safer and more reliable public transportation system,” said House Speaker Ronald J. Mariano (D-Quincy). “I want to thank Chairman Aaron Michlewitz and my colleagues in the House, along with our partners in the Senate, for their hard work and critical input throughout this process, a collective effort that has helped to produce a strong and responsible FY25 budget.”

“While this budget was the result of a lot of hard work, I would like to offer a sincere and heartfelt thank you to Senate President Spilka, whose stanch and compassionate leadership guided us through this process from the beginning. I’m glad to be able to work together as we endeavor to reshape our economy for the many challenges we continue to face in the new millennium. This agreement is reflective of a responsive final Fiscal Year 2025 budget that protects our long-term fiscal; health, makes substantial investments to move our economy forward, and centers regional equity,” said Senator Michael J. Rodrigues (D-Westport), Chair of the Senate Committee on Ways and Means. “The FY25 budget specifically makes targeted investments collectively in education, transportation, local aid, health care, housing assistance, and workforce development, while shaping an affordable and fiscally sustainable path for the Commonwealth. Thank you to my Senate and House conferees, and House Ways and Means Chair Aaron Michlewitz for his determination, resolve, and partnership to get the job done and produce a responsible budget we can all be proud of. I also thank all my colleagues in the Senate, whose advocacy, collaboration, and dedication helped to inform and shape this comprehensive budget plan. A special thank you to the Ways and Means staff, whose diligent work over the last several months was largely responsible for producing this budget, their tireless efforts do not ever go unnoticed.”

“The $58.1 Billion Fiscal Year 2025 conference committee report is truly a reflection of the best and most critical initiatives that were contained in the various budget proposals that have been presented this year. Whether it is greater investments into programs like housing stability, food security, or early education the initiatives contained in this budget are a reflection of our shared values,” said Representative Aaron Michlewitz, Chair of the House Committee on Ways & Means (D-Boston). “By reinvesting in the people of the Commonwealth we will continue to assist those in need while making our economy more competitive and equitable for years to come. I want to thank Speaker Mariano for his leadership during this budget process, as well as my fellow House conferees, Representative Ferrante and Representative Smola. I also want to thank my counterparts in the Senate, specifically my co-chair Senator Rodrigues, for their partnership in bringing this proposal over the finish line.”

“The Commonwealth’s budget for Fiscal Year 2025 agreed to by the Legislature today provides for a high level of quality for the programs that our municipalities and residents rely on,” said Senator Cindy F. Friedman (D-Arlington), Vice Chair of the Senate Committee on Ways and Means. “This is a budget that balances fiscal constraints with targeted, impactful investments that ensure statewide stability and regional equity. As we grapple with rising costs and access challenges within the Massachusetts health care system, I am especially proud that this budget utilizes tools to maximize our health care dollars for the facilities and providers that serve our most vulnerable residents. I am thankful to the leadership and my colleagues across the Legislature for their dedicated work to put forward a robust final budget that will benefit all of Massachusetts.”

"As Massachusetts continues to compete for jobs and economic growth, the Legislature has produced a fiscally responsible budget that allocates funding in areas necessary to create pathways to lasting success for our residents," said Representative Ann-Margaret Ferrante (D-Gloucester), Vice Chair of the House Committee on Ways and Means. "The budget emphasizes the need to make Massachusetts an attractive, competitive, and affordable place to live and work, making groundbreaking investments in housing, workforce development, education, and transportation. Thank you to Speaker Mariano and Chair Michlewitz for your leadership and to my fellow conferees for your collaboration in getting this budget across the finish line."

“I am very pleased with the outcome of the FY25 Budget Conference Committee and that our two respective legislative bodies have effectively reconciled the differences between House and Senate language in a way which reflects upon the fiscal responsibility and commitment that we have to the residents of the Commonwealth,” said Senator Patrick M. O’Connor (R-Weymouth). “The Budget agreement ultimately showcases an investment in our communities, is supportive of our education system, and will have an impact in strengthening our state’s economy. I believe that this compromise proves to be supportive of the priorities that both the House and the Senate have had throughout our respective budgets, and is a big step forward in the legislative process. As Ranking Minority Member of the Senate conferees, I have always taken pride in reaching across the aisle and working with my colleagues, regardless of our political affiliation, in concluding what will benefit the lives of those who live and work in Massachusetts the most.”

“This was an exceptionally challenging budget year that brought some financial uncertainty along the way. We are mindful of those concerns and are closely watching the fiscal landscape,” said Representative Todd M. Smola (R-Warren). “Despite the challenges, this budget is a continuation of our commitment to communities by investing in local aid, and increases on all levels of education including funding free school meals for every child in our state. We do this without relying on tax increases, something that residents appreciate in the current climate. We are grateful for the hard work and advocacy of so many people across the commonwealth for important programs.”

The FY25 budget recommends a total of $58 billion in spending, a $2 billion increase over the Fiscal Year 2024 (FY24) General Appropriations Act (GAA). This spending recommendation is based on a tax revenue estimate of $41.5 billion for FY25, which is $208 million less than revenues assumed in the FY24 GAA. This represents nearly flat growth, as agreed upon during the consensus revenue process in January, plus $1.3 billion in revenue generated from the Fair Share surtax.

As the Commonwealth adjusts to a changing economic landscape and ongoing tax revenue volatility, the FY25 budget adheres to disciplined and responsible fiscal stewardship. It does not raise taxes, nor does it draw down available reserves from the stabilization fund or the transitional escrow fund, while at the same time judicially utilizing one-time resources to maintain balance. The FY25 budget continues responsible and sustainable fiscal planning for the future by continuing to grow the Rainy Day Fund, already at a historic high of over $8 billion, to an anticipated balance of roughly $9 billion at the close of FY25.

Fair Share Investments to Grow Our Economy

Consistent with the consensus revenue agreement reached with the Healey-Driscoll Administration in January, the FY25 budget includes $1.3 billion in revenues generated from the Fair Share surtax of four percent on annual income above $1 million and invests these public dollars to improve the state’s education and transportation sectors.

Notable Fair Share education and transportation investment highlights include:

Education: 59% of Fair Share Revenues

$170 million to fully fund universal free school meals programming for every public-school student in the Commonwealth.
$175 million for the Commonwealth Cares for Children (C3) program to provide monthly grants to early education and care programs, which is matched with $300 million in funds from the new Early Education and Care Operational Grant Fund and the High-Quality Early Education and Care Affordability Fund for a total investment of $475 million.
$117.5 million for MassEducate to provide free community college across the Commonwealth.
$80 million to expand financial aid programs for in-state students attending state universities through MASSGrant Plus, which is in addition to the $175.9 million for scholarships funded through the General Fund.
$65 million for early education and care provider rate increases, to increase salaries for our early educators.
$20 million for early literacy initiatives.
$14 million for grants to State Universities to provide wraparound supports and services.
$5 million for the CPPI Pre-K Initiative, matching $17.5 million in funds from the general fund, for a total of $22.5 million to support the expansion of universal pre-kindergarten, including in Gateway Cities.

Transportation: 41% of Fair Share Revenues

$250 million for the Commonwealth Transportation Fund (CTF), which will leverage additional borrowing capacity of the CTF and increase investments in transportation infrastructure by $1.1 billion over the next 5 years. This $250 million includes:
$127 million to double operating support for the MBTA.
$63 million in debt service to leverage additional borrowing capacity.
$60 million in operating support for MassDOT.
$60 million for MBTA capital investments, including $10 million for resilient rail services.
$36 million for the MBTA workforce safety reserve.
$10 million for the MBTA Academy.
$45 million for roads and bridges supplemental aid for cities and towns.
$110 million for regional transit funding and grants to support the work of Regional Transit Authorities (RTAs) that serve the Commonwealth, which together with general fund spending funds RTA operations at $204 million. Fair Share funding includes:
$66 million in direct operating support for Regional Transit Authorities.
$30 million for systemwide implementation of fare-free transit service.
$10 million to incentivize connections between regional transit routes.
$4 million to support expanded mobility options for the elderly and people with disabilities.
$20 million to support implementation of a low-income fare relief program at the MBTA.
$7.5 million for water transportation funding and operational assistance for ferry services.

Education: Early Education and Care, K-12 and Higher Education

The FY25 budget supports students across the full spectrum of the Commonwealth’s education system, shaping polices to make high-quality education more accessible and by making significant investments in the education system, from our youngest learners to adults.

To create a new funding source for EEC initiatives, the budget allows the Massachusetts Lottery to sell its products online. A portion of the new revenue collected from online lottery sales, estimated to be $100 million in FY25, would fund C3 grants, which provide long-term stability for high-quality and affordable care for families.

The budget report delivers significant levels of investment in education, including:

$6.9 billion in Chapter 70 funding, an increase of $317 million over FY24, as well as increasing minimum Chapter 70 aid from $30 to $104 per pupil, delivering an additional $37 million in resources to school districts across the state.
Over $1.55 billion investment in the early education and care sector, including:
- $475 million for the Commonwealth Cares for Children (C3) grants.
- FY25 is the second fiscal year in a row which the annual state budget includes a full year of funding for C3 grants, signaling a historic commitment to maintain this crucial lifeline for our early education and care sector.
- The FY25 budget also makes the C3 program permanent, while including provisions to direct more funds from the C3 program to early education and programs that serve children receiving childcare subsidies from the state and youth with high needs.
$117.5 million for free community college across the Commonwealth, covering tuition and fees for students.
$493.2 million for the special education (SPED) circuit breaker.
$99.5 million to reimburse school districts for regional school transportation costs, representing an 85 per cent reimbursement rate.
$18.5 million for Head Start grants.
$16 million for rural school aid assistance.
$6 million for Social Emotional Learning Grants to help K-12 schools continue to bolster social emotional learning supports for students, including $1 million to provide mental health screenings for K-12 students.
$5 million for grants to support implementation of the Massachusetts Inclusive Concurrent Higher Education law, including $3 million for grants offered through the Massachusetts Inclusive Concurrent Enrollment initiative to help high school students with intellectual disabilities ages 18–22 access higher education opportunities; and $2 million for the Massachusetts Inclusive Concurrent Enrollment Trust Fund.
$3 million for genocide education grants to facilitate teaching students the history of genocide.
$1 million for hate crimes prevention grants to support the prevention of hate crimes in public schools.

The FY25 budget codifies several provisions that transforms the early education sector by improving affordability and access for families, increasing pay for early educators, and ensuring the sustainability and quality of early education and care programs.

In K-12 education, the FY25 budget follows through on the Legislature’s commitment to fully fund and implement the Student Opportunity Act (SOA) by Fiscal Year 2027, investing $6.9 billion in Chapter 70 funding, an increase of $319 million over FY24, as well as increasing minimum Chapter 70 aid from $30 to $104 per pupil, delivering an additional $37 million in resources to school districts across the state. With these investments, the Legislatures continues to provide crucial support to school districts confronting the increasing cost pressures that come with delivering high-quality education to all students.

In addition to the record levels of investment in early education and K-12, the FY25 budget removes barriers to accessing public higher education by codifying into law MassEducate, a $117.5 million investment in universal free community college program that covers tuition and fees for residents, aimed at supporting economic opportunity, workforce development, and opening the door to higher education for people who may never have had access. The FY25 budget permanently enshrines free community college into law in an affordable and sustainable manner across the Commonwealth, while leaving no federal dollars on the table.

Health, Mental Health and Family Care

Investments in the FY25 budget allow more than two million people to receive continued access to affordable and comprehensive health care services. Health care investments include:

$20.36 billion for MassHealth, representing the largest investment made in the state budget.
$2.9 billion for a range of services and focused supports for people with intellectual and developmental disabilities.
$622.4 million for Department of Mental Health (DMH) adult support services.
$625 million for nursing facility Medicaid rates, including $40 million in additional base rate payments to maintain competitive wages in the Commonwealth’s nursing facility workforce.
$390 million for Chapter 257 rates to support direct-care providers across the continuum of care.
$212.7 million for a complete range of substance use disorder treatment and intervention services.
$131.4 million for children’s mental health services
$33.8 million for Family Resource Centers to grow and improve the mental health resources and programming available to families.
$30.9 million for Early Intervention services, ensuring supports remain accessible and available to infants and young toddlers with developmental delays and disabilities.
$29.6 million for grants to local Councils on Aging to increase assistance per elder to $15 from $14 in FY 2024.
$27.9 million for family and adolescent health, including $9.2 million for comprehensive family planning services and $6.7 million to enhance federal Title X family planning funding.
$20 million to recapitalize the Behavioral Health, Access, Outreach and Support Trust Fund to support targeted behavioral health initiatives.
$14.7 million for maternal and child health, including $10.4 million for pediatric palliative care services for terminally ill children and a policy adjustment to ensure that children up to age 22 can continue to be served through the program.
$5.5 million for Children Advocacy Centers to provide critical supports available to children that have been neglected or sexually abused.
$2 million for grants for improvements in reproductive health access, infrastructure, and safety.

The FY25 budget, for the first time in Massachusetts’ history, allows an individual to be identified with a non-binary ‘X’ sex designation on their birth certificate and enshrine into law the current practice of allowing an individual to select a non-binary ‘X’ gender designation on their driver’s license. This step ensures that all residents—including trans and nonbinary people—can secure government documents that accurately reflect who they are.

Additionally, the FY25 budget recognizes that the cost of fertility preservation should not be a barrier to starting a family for Massachusetts residents with cancer or other serious medical conditions. It therefore requires health insurance carriers to cover fertility preservation treatments for individuals who have a medical diagnosis or who are going through medical treatments that may impact fertility. It also includes coverage for the procurement, cryopreservation, and storage of gametes, embryos, or other reproductive tissue.

Housing

The FY25 budget invests $1.15 billion in housing, dedicating resources for housing stability, residential assistance, emergency shelter services, and homelessness assistance programs, ensuring the state deploys a humane, responsible, and sustainable approach to providing families and individuals in need with an access point to secure housing.

The budget prioritizes relief for families and individuals who continue to face challenges brought on by the pandemic and financial insecurity, including $326.1million for Emergency Assistance Family Shelters, in addition to the $175 million in resources passed in the recent supplemental budget, to place the Commonwealth’s shelter system on a fiscal glidepath into FY25. Housing investments include:

$231.7 million for the Massachusetts Rental Voucher Program (MRVP), including $12.5 million in funds carried forward from FY24.
$197.4 million for Residential Assistance for Families in Transition (RAFT).
$113 million for assistance to local housing authorities.
$110.8 million for assistance for individuals experiencing homelessness.
$57.3 million for the HomeBASE program.
$27 million for the Alternative Housing Voucher Program (AHVP), including $10.7 million in funds carried forward from FY24, to provide rental assistance to people with disabilities.
$10.5 million for assistance for unaccompanied homeless youth.
$10.5 million for Housing Consumer Education Centers (HCECs).
$8.9 million for sponsor-based supportive permanent housing.
$8.9 million for the Home and Healthy for Good re-housing and supportive services program, including funding to support homeless LGBTQ+ youth.

The FY25 budget includes important consumer protections, including ending the practice of home equity theft, a practice where cities, towns, and even private companies can foreclose on a home for taxes owed, sell it, and pocket the profits. With this crucial step, the Legislature strikes a balance to ensure equity is returned to homeowners and taxpayers, while municipalities will be made a whole and protected moving forward.

Expanding and Protecting Economic Opportunities

The budget includes a record investment in the annual child’s clothing allowance, providing $500 per child for eligible families to buy clothes for the upcoming school year. The budget also includes a 10 per cent increase to Transitional Aid to Families with Dependent Children (TAFDC) and Emergency Aid to the Elderly, Disabled and Children (EAEDC) benefit levels compared to June 2024. Other economic opportunity investments include:

$496.2 million for Transitional Assistance to Families with Dependent Children (TAFDC) and $183.2 million for Emergency Aid to Elderly, Disabled and Children (EAEDC) to provide the necessary support as caseloads increase, and continue the Deep Poverty increases.
$59.8 million for adult basic education services to improve access to skills necessary to join the workforce.
$42.4 million for the Massachusetts Emergency Food Assistance Program.
$15 million in Healthy Incentives Programs to maintain access to healthy food options for households in need.
$10.4 million for Career Technical Institutes to increase our skilled worker population and provide residents access to career technical training opportunities.
$10 million for the Workforce Competitiveness Trust Fund to connect unemployed and under-employed workers with higher paying jobs.
$10 million for a community empowerment and reinvestment grant program to provide economic support to communities disproportionately impacted by the criminal justice system.
$5.4 million for the Innovation Pathways program to continue to connect students to training and post-secondary opportunities in STEM fields.

Community Support

The FY25 budget further demonstrates the Legislature’s commitment to partnerships between the state and municipalities, dedicating meaningful resources that touch all regions and meet the needs of communities across the Commonwealth. This includes $1.3 billion in funding for Unrestricted General Government Aid (UGGA), an increase of $38 million over FY24, to support additional resources for cities and towns.

In addition to traditional sources of local aid, the FY25 budget includes the following local and regional equity investments:

$204 million for Regional Transit Authorities (RTAs) to support regional public transportation systems, including $110 million from Fair Share funds to support our RTAs that help to connect all regions of our Commonwealth.
$53 million for payments in lieu of taxes (PILOT) for state-owned land, an increase of $1.5 million over FY24. PILOT funding is an additional source of supplemental local aid for cities and towns working to protect and improve access to essential services and programs during recovery from the pandemic.
$52.4 million for libraries, including $19 million for regional library local aid, $20 million for municipal libraries and $6.2 million for technology and automated resource networks.
$26.9 million for the Massachusetts Cultural Council to support local arts, culture, and creative economic initiatives.