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Looking Under the Hood of Public Higher Ed

Last week, the College Board released its annual Trends in College Pricing report, finding that tuition at the nation’s public four-year colleges and universities had risen 6.6 percent, which is roughly equivalent to previous years but continues to far outstrip inflation and increases in family income.

Media coverage of college affordability almost invariably takes its cues from this report, focusing on the “sticker price” that colleges and universities charge students. But tuition alone is a relatively superficial measure that hides as much as it reveals, since it responds to changes in state allocations, political factors and fund raising success.

What has gone mostly undiscussed is escalating spending on college campuses across the country. A public discussion focused on tuition – the price of the education – gives institutions a free pass on how they spend the money they raise. Furthermore, this discussion reinforces the assumption that spending increases follow some sort of natural progression. But this is not the case. Spending can and must be contained if the price of college is to be brought under control.

This message is falling on deaf ears today in part because last year was a good state appropriations year for colleges and universities. But even in bad years, public institutions are raising spending. Today, higher education is a “seller’s market.” Demand for college has never been higher, and families are willing to take on dangerous amounts of debt to get their children through.

However, the willingness of families to reach deeper into their pockets is reaching a breaking point. Recent polling by my organization, the National Center for Public Policy and Higher Education, and Public Agenda shows that the public is concerned about how colleges and universities spend their money. Most Americans (83 percent) believe that today’s colleges should be doing a much better job of keeping their costs down. More than two out of three (68 percent) believe that colleges and universities could reduce their costs without hurting the quality of the institutions.

The American public is onto something. But many institutional leaders have not been willing to look under the hood of higher education expenditures. Typically, leaders have used a range of excuses to deflect questions about spending. Some common excuses, and my responses to them, follow:

Increases in tuition reflect the high demand for postsecondary education and financial aid keeps the net cost to families under control. Public college and university leaders think there is no crisis in higher education so long as there are students and families willing to pay. But tuitions at four-year public institutions have risen 22 percent in the past five years, after adjusting for inflation, while family incomes have increased only 8 percent. What’s more, need-based financial aid is not keeping up with increases in tuition, pricing many poor families out of higher education. Continual price hikes may respond to market forces, but do not honor the public mission of state colleges and universities.

Higher education is a labor-intensive industry and faculty salaries and health care costs are behind most of the recent run-up in spending. Because institutions use humans to pass on knowledge, historically a greater proportion of their budgets have gone to salaries and benefits than in other industries. But this is not where most of the spending growth is occurring. Faculty salaries have barely kept up with inflation for the past 10 years. Last year, faculty salaries rose on average 1.3 percent after adjusting for inflation – the first inflation-adjusted increase since 2003-2004. In addition, the use of cheaper part-time faculty is growing fast, now making up 48 percent of all faculty, according to the American Association of University Professors. On the other hand, universities are spending huge amounts of money on construction – for new dorms, new athletic facilities, and new student centers– as part of an “amenities arms race.” And administrative overhead at many universities has ballooned, due to an explosion in niche student services and fund raising apparatuses. It is doubtful that these developments have improved student learning.

There is great competition for applicants nowadays, and we have to spend to compete for the best students. This is probably the most common excuse offered by leaders at state flagship universities, but they are not referring to competition with other state institutions. Rather, leaders at public research universities are increasingly viewing themselves as competitors with private research universities such as Duke and Stanford, or even Ivy League institutions. These leaders feel that they can only “compete” if they offer the same amenities and practice the same aggressive recruitment tactics, including lavish merit aid for high performing students, which takes resources away from low-income students. Instead, they should refocus on their educational mission, and the advantage that public institutions have always had: the availability of need-based financial aid and the opportunity for a great education. Prospective students seeking high quality education at low cost will be smart enough to know the difference between style and substance.

There’s no political incentive to take on cost containment. Most institutional leaders don’t want to touch this issue because it almost inevitably leads to faculty concerns that they will be expected to do more for less. Faculty will revolt, if “cost containment” means across-the-board budget cuts. In cases where institutional leaders have contained spending and reinvested savings in teaching and learning, faculty have been very supportive. The University System of Maryland is a case in point. Chancellor William E. (Brit) Kirwan got faculty support for the Effectiveness and Efficiency Initiative, which identified areas for cost savings and redirected those savings toward priorities such as increasing enrollment capacity, containing tuition increases, and improving academic programs and services for students. Even though faculty teaching loads increased 10 percent, faculty largely supported the measure, because it was focused on improving student learning.

At the state level, lawmakers and system heads don’t want to engage cost because it requires a restructuring of higher education finance. States base appropriations on students enrolled, which encourages spending on amenities and recruitment — not students graduating.

Where there have been incentives, universities have proven capable of cost management. In the 1990s, the Illinois Board of Higher Education established the Priorities, Quality, and Productivity initiative, which re-evaluated all academic programs with an eye to institutional priorities. Elimination of duplicative programs, technology enhancements, and administrative streamlining resulted in savings averaging $36 million annually. As at Maryland, faculty came to support PQP because the savings generated were reinvested in instruction. These funds were most often used to reduce class size and reliance on graduate teaching assistants; support minority student achievement; improve technology; and expand need-based financial aid.

My hands are tied, because the biggest decisions are made at the state level. Big decisions about allocations are made at the state level, but institutional leaders have a lot of discretion about how that money is spent. While there aren’t many incentives for cost containment now, there also isn’t much oversight of spending requests. Institutional leaders have lots of room to maneuver on this issue.

Cutting spending hits disadvantaged students hardest. Cutting spending only hits disadvantaged students hardest if need-based financial aid is the first target. In fact, cost containment, if it focuses (as it should) on increasing instructional spending, boosting degree completion, and streamlining administrative processes, can make public higher education work much better for disadvantaged students. That is because these are the students most likely to have trouble completing degrees and to have the most interaction with administrative offices.

There is another major reason why colleges are not acting on this agenda. There is too little data about how spending impacts learning. In contrast to business or the military, how inputs affect outputs is poorly understood in higher education. New research being conducted by the Delta Project for Postsecondary Costs to be released next year will set the basis for looking at the relationship between spending and student success.

But the lack of data is no barrier for action. We don’t need to wait for longitudinal studies to know that more spending on full-time faculty and need-based financial aid will impact student learning more than a glitzy new dorm.

Taking a hard look at the evidence shows that it is time to focus on college spending patterns and that there is a lot college leaders can do right now to contain the spending that drives up college prices. Many of the problems originate at the state level, but bold leaders will take action regardless of incentive structures and political rewards. It is time to expect more of college and university leaders than we do now.

Patrick M. Callan is president of the National Center for Public Policy and Higher Education.

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Comments

On the construction issue

Your point isn’t made very well about the role of construction projects in increasing public university tuitions. Money for major construction projects typically doesn’t come directly out of a university’s budget; these projects tend to be funded by separate state appropriations (or at least they have at every university I’ve worked at).

Now, it is certainly interesting that the states seem always to have money for new construction at public universities, but are reluctant, by and large, to fund the hiring of new faculty. I think this is evidence less for successful lobbying by universities than for successful lobbying (and more) by big construction firms. Cronyism between these firms and high-level administrators, many of whom feel no loyalty to their institutions as they hop from college to college in search of raises, also plays some role. I’m amazed that there is so little discussion of this issue in print: it was a very visible problem at my last university.

No one can deny that funding by the states for public universities has dropped dramatically over the last several decades, so much so that many of these institutions now refer to themselves as “quasi-public.” One “good year” in state funding isn’t going to make up for decades of neglect. If you cut funding to this extent, public universities are going to have to make up the difference by raising tuitions. If parents don’t like it, maybe they should pay more attention to what their state legislatures are doing. Solving this problem wouldn’t necessarily involve raising taxes either. It would involve preventing graft and corruption, and reducing the role of professional administrators in university governance. The salaries collected by these individuals are notoriously outrageous, and in my experience, they often know shockingly little about how universities are run.

Alfred, at 8:20 am EDT on November 2, 2007

While I agree with most of what Patrick is saying in this article, I think there should be several other points.

As to the personnel cost. If you work at an institution that is in a union environment, where everyone except management is tied to a collective bargaining contract, you have automatic increases. Likewise, there are increases in all cost especially utilities, maintenance, etc. If you do not acknowledge this fact then the rest of the argument on cost containment goes flat. Someone has to pay for these incrases either by taxes or tuition. Holding a “status quo” to cost vs how to pay for these cost does not work.

In economics this is principle is called there is “no such thing as a free lunch.” It works in all of higher education.

Also, the idea about streamlining administrative processes is great, most universities and colleges that I am aware of have very little in the way of “staff,” since the advent and proliferation of the computer, “staff” have been consolidated to such an extent that in some cases, students never see a person to solve a non academic issue. Where the increase in personnel has been apparent is on the academic side of the equation, with increases in all areas: lecturers, professors, adjunct, deans, dean assistants,etc. For good reason: this is a people business, and the product we are selling is education. So to think that streamlining adminsitration and staff will cut the cost, is a “dream.”

The other item is to understand your customer. Today’s student is a consumer of the highest order. They want the biggest and the best that money can buy. Money is not the object, parents and student complain about the high cost of education, then go out and borrow $10,000 above the cost of attendance, becaused they need it to live on, to support the life style. An example of this life style is in “dorm” living. University after universtiy are moving from “dorm” to townhouses and apartments. Instead of 4 people to a room and a communal bathroom (heaven forbide), we now have individual rooms, individual bathrooms, cable in everyroom, air conditioning in everyroom, etc,etc,etc. These things all cost and someone has to pay. Even with this students and parents “add” to the cost. This other “additional cost comes from students and parents who borrow excess funds, these come from alternative loans, which are private loans, that the higher education institutions have little to do with except to process the bank check, create a refund and issue a refund check under the educational facilities name, so the student and parent think they are receiving “financial aid” and then they have the right to complain about the high cost.When in fact they are receiving a bank loan that has to be paid back, which really has nothing to do with education.

This is an old story, not a new one. It goes deeper, it is how in America we view debt and consumerism.

Jim, at 9:25 am EDT on November 2, 2007

The cost of higher education

The Patrick Callan article was informative and insightful. Sadly, the same public funding issues that exist in healthcare now exist within higher education. As taxpayer dollars increase year by year, colleges and universities eat up these increases by raising tuitions and fees, regardless if the institutions cost structure warrants it or not. This tax funded cost spiral drove our healthcare market to the current sad sorry state it is in now, and it is having the same effect on the cost of higher education.

The article did not mention that higher education has been woefully inept in the use of information technology to help control cost. Although higher ed schools have spent billions on IT, they have not used these technologies to effectively help control cost. Adminstrators bear the responsibility for this lack of creativity. The internet was supposed to “democratize knowledge” by allowing education to be transmitted to the very poorest among us. That has not happened and higher ed has only itself to blame for that failure.

feudi pandola, at 9:35 am EDT on November 2, 2007

I wish I knew where the money goes at my public university. We have a union but contract raises were not implemented because funding from the state was inadequate. The use of adjuncts is greater than 50% in my dept. Efficiency means that we must teach more students in larger classes, without increases in the resources needed to teach them. There are too few tenure track faculty to staff important committees, but every year there is a new initiative from the administration, added to past ones and our ongoing duties. Assessment seems to be more important than teaching. Now we are being asked to join in the begging of external funds from donors, a form of “privatization” that came down this year.

I know that we are not seeing the funds at our level, nor are the students seeing the benefit in the classroom. Where is the money going? I really want to know!

Perry, at 11:30 am EDT on November 2, 2007

I notice that not much has been said about the rising cost of athletics. While some sports are self-supporting (basketball on my campus) most are not and some of the money goes to keep athletics compatible. Faculty salaries may not have kept pace with the cost of living, but coaches salaries have far exceeded them...

joe Hawes, at 1:45 pm EDT on November 2, 2007

Cost drivers

New buildings (construction may come from a different pocket but maintenance and furnishings may not), rising cost of big athletics, administrative costs (e.g. new administrators in charge of assessment), certain big ticket high profile academic activities (not all science and engineering programs have all their costs covered by grants and teaching).

Actual teaching costs — given the increase in low cost adjunct teachers and the like I don’t think that’s where the problem lies.

Faculty Person, at 5:40 pm EDT on November 2, 2007

This one is easy to understand. Colleges and universities won’t address this issue because they don’t have to do so. Like public schools, money flows to them whether they do a good job or not.

perfesser, at 7:10 am EST on November 4, 2007

Fringe Benefits

The analysis in bold-faced item number 2 is incomplete. You can’t say costs are not due to “salary and benefits” and ignore benefits. The cost of health insurance has skyrocketed, and may also explain the shift from full-time to part-time instructors — because the latter do not have to be paid fringe benefits. Further, in the cases I am familiar with, dorms have nothing to do with tuition. They are self-funded out of rental income, and must be improved to compete with off-campus apartments (not to mention the expectation of a generation with private bedrooms and no military experience).

The analysis in the third item is also flawed. My expectation as a student was that a flagship state university should offer an alternative to a vastly more expensive flagship private university, including access to intelligent fellow students. This requires full-ride scholarships to top students, not just top athletes, and that is what my alma mater did. As an alumnus, I continue to support that scholarship program even though I only benefited from it indirectly. Supporting excellence at a flagship program is an explanation, not an excuse, and is probably justified even at a 3rd tier institution.

CC Professor, at 9:00 pm EST on November 4, 2007

Important issues

Very important issues are addressed here, both in the (very good) article and in the comments. Public HE has become a very complicated issue. Will it be possible for public HE Institutions to compete with the private ones for the top places in the various ranking schemes? And, if yes, will they still be public? (in essense).UC Berkeley is a very interesting case to watch.

John Panaretos, Professor at Athens University of Economics & Business, Breece, at 5:40 am EST on November 7, 2007

In response to Jim’s comments...

“This other “additional cost comes from students and parents who borrow excess funds, these come from alternative loans, which are private loans, that the higher education institutions have little to do with except to process the bank check, create a refund and issue a refund check under the educational facilities name, so the student and parent think they are receiving “financial aid” and then they have the right to complain about the high cost.When in fact they are receiving a bank loan that has to be paid back, which really has nothing to do with education.This is an old story, not a new one. It goes deeper, it is how in America we view debt and consumerism.”

Jim, you make it sound like parents and students always have a choice, and that they only take out the loans for frivolous excesses like private rooms and all kinds of luxuries. And sometimes they do.

However, every year more and more students are forced to take out those loans just to cover tuition/fees, books and basic living expenses. I work for a non-profit in San Francisco that provides 4-year scholarships to underprivileged teens from public schools, and my job has increasingly required me to advise our freshman in financial aid and financial management. Granted, the Bay Area cost of living pushes more students toward loans for survival than in most other areas, but trust me — our students are not living it up. In fact, most of them are living at home and taking what they can get to help pay for rent, food and medical bills for an entire household.

Also, you make it sound like the schools and private loans are practically unaware of each others’ presence. Have you not heard of the college financial aid and admissions personnel who have been prosecuted for helping private lenders, or the “incentives” given to many such personnel to curry favor? I assure you that financial aid officers and school finance officers are ACUTELY aware of any and all options for students, and they capitalize on that every chance they get.

Example: it so happens that while working for this non-profit, I also happen to be pursuing an MFA in Photography at a local private institution. For the first time that I know of, the PLUS loan was offered to grad students a year ago (previously only offered to parents of undergrads). Most grad programs have little or no scholarships, especially in art school, and mine offers none. Almost simultaneously, I received a notice that my tuition was increasing by $100/credit and lab fees were increasing by $50 for each class, thus raising my total cost for the year by about $2500. The amount of the PLUS loan? About $3500 for the year. Coincidence? I think not.

The fact of the matter is that college costs not only have risen faster than income, but they move in lockstep with all federal and private funding increases — why wouldn’t they? They’d be crazy not to. If congress succeeds in increasing the Pell Grant to $4900 per year, I GUARANTEE costs will increase.

Caveat: I personally believe that it’s not necessarily the college who is first to follow the funding bar every time it’s raised. I’m pretty sure that most of the biggest private contractors in colleges watch the numbers and may actually jump first. If Sedexo/Marriott or the parking managers or security firms or janitorial service vendors see that students suddenly are given a windfall in funding, why not increase their fees, too? They know that the school will eventually pass the cost on to the student...

The bottom line: I am pretty sure that higher ed funding will become the new mortgage lending crisis. It’s been ripe for the picking for years now. There’s a huge, steady supply of students and plenty of demand for college grads in the economy (not only to replace retiring baby boomers, but also as part of the American corporate frenzy to push costs as low as possible by keeping salaries low). Let the feast begin. In 20 years, we’ll see college grads who can’t contribute to the economy because their paychecks will mostly be going to repay school for 10-20 years. They won’t buy houses, new cars, invest in stocks, purchase many goods, etc., etc....

To put this into perspective, I remember how my grandfather paid for his private college education after the Depression. When he was a freshman in 1934, the school was struggling to survive, and enrollment was small. So they accepted cartloads of apples from his parent’s orchard as part of his first year’s tuition. Apples! Thereafter, to supplement his scholarships so he could live on campus, he brought the family’s best milk cow to school and sold eight bottles of milk locally every morning for $0.10 each. Milk! And apples!

After graduating, he married my grandmother, took a teaching job in a nearby rural town and promtly borrowed a bit of money and built a two-story house (which still stands in Gooding, Idaho to this day) and bought a truck. For most of the rest of his working life, he supported 5 kids and my grandmother on a teacher’s/professor’s salary.

Those days are LONG GONE. Why should they be, though? I hate to sound like a fuddy-duddy (I’m only 38), but why is it that even blue-collar workers as recently as 30 or 40 years ago were able to have a house, a car, raise a family and retire in relative comfort, and now we’re castigating college students for griping about financial aid??? We should ALL be griping about this.

It’s seldom true anymore that a college student can just get a few grants and scholarships and work very hard and come out with a college degree ready to participate fully in the American Dream. But what choice do they have?

I decided to get an MFA so I could teach in a college setting like my father, grandfather and many other relatives — it’s in our blood, and I’d be damn good at it. But I just don’t know if I can even stomach the fact that: a) I’ll be getting paid crap and most of it will go to pay off my loans, and b) I’ll have to teach knowing that my students are getting the shaft with a long line of government agencies and private vendors reveling in the spoils.

Shane, at 8:35 am EST on November 7, 2007

It’s Already Here

“In 20 years, we’ll see college grads who can’t contribute to the economy because their paychecks will mostly be going to repay school for 10-20 years. They won’t buy houses, new cars, invest in stocks, purchase many goods, etc., etc....”

What do you mean, in 20 years? This is happening already!

Scrawed, at 6:10 pm EST on November 7, 2007

Shane

Obviously, there is some connection between tuition increases and the availability of financial aid. Why shouldn’t there be?

But to say it’s lockstep is inaccurate. Pell Grants and annual limits on federal loans have not icnreased in years, yet that hasn’t stopped colleges from raising prices.

Finally, no one has been “prosecuted” as a result of Cuomo’s or any AG’s investigation.

Alex Hamilton, at 3:05 pm EST on November 8, 2007

Looking Under the Hood...

In response to Alex’s response to my post:

“Obviously, there is some connection between tuition increases and the availability of financial aid. Why shouldn’t there be?”

> OK, that’s a fair question. Anyone else want to take some stabs at that one? When we look at costs of education and the federal, state and local impacts of all the funds involved, what ethical standards do we apply, if any, to WHERE the funds end up? As long as the same number of students are able to matriculate, does it matter whether their total bill is $1000 or $1million, so long as the ratios of grants to debt are the same?I think where it really turns into a problem is on the matter of student debt. When enough of the overall institutional costs are passed on to the student that loan default rates match those of the recent mortgage loan crisis? I think were headed that way. Even if “all boats” are rising together (institutional costs, grant/schol/loan amounts, student tuition/fee increases), does that justify the faster and faster rate of increases all the way up the chain? Will that cause something along the chain to break catastrophically someday?

“But to say it’s lockstep is inaccurate. Pell Grants and annual limits on federal loans have not icnreased in years, yet that hasn’t stopped colleges from raising prices.”

> I guess I should have clarified to include all the different levels of large grants, private funding and scholarships. there are people at EVERY institution who watch these numbers very, very carefully, and make increases in “lockstep". However, you do make a valid point that even without the justification for increases in tuition/fees, institutions still decide to make increases when they feel “forced” to.

“Finally, no one has been “prosecuted” as a result of Cuomo’s or any AG’s investigation.”

> Give me a break, man. That’s hair-splitting. The point that institutions are intimately aware of lending options is still alive and well and valid, trust me. And stay tuned on the “prosecutions"...er, “accusations". ;-)

Shane, at 7:55 pm EST on November 14, 2007

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