Well, you’ve hit upon the two important items frequently forgotten for a safety.
Obviously the SUNYs would qualify. He won’t get anything at Penn State and I think the ACT is too low for Ohio State. Here are some low cost colleges which may still be under $25K
http://talk.collegeconfidential.com/financial-aid-scholarships/1651944-very-low-cost-oos-coa-universities-less-than-25k-coa-for-everything.html#latest