Legal and policy initiatives to achieve various tuition policy goals are proposed for the Massachusetts Board of Regents of Higher Education. The suggested tuition policy builds on the policy adopted by the Board in 1984. Details are provided on tuition and access, tuition and equity, the margin for excellence, tuition and fees, and predictability. A background on the subject focuses on the Regent's current policy and on policies in other states. Tuition charges are discussed in terms of tuition goals, implementation, and other issues, and 13 recommendations are made (i.e., tuition rates at community colleges should be set at 25% of the average cost per student; the maximum increase in any one year for resident students should not exceed 9%). Tuition retention and waivers are discussed with an emphasis on tuition retention, tuition remission waivers, and net retained tutition and expenditure guidelines. Four recommendations are made regarding college and university fees. A policy evaluation is included. Overall, this report calls for significant increases in tuition as well as several mechanisms to insure that students in need are protected. Six attachments are: a copy of the 1984 "Tuition Policy"; an outline of tuition policies in other states; a table showing state supported student enrollments by institution for 1987; a policy statement on the tuition waiver program; waiver cost estimates; and a report on public university and college undergraduate student fees. Tables and figures are included. (SM)