For the past several years, this
blog has covered several issues that are the subject of a new state audit of
the UC system. Our main concerns have been the unequal funding of the campuses,
the crowding out of students from California through nonresident admissions,
the lack of UC budget transparency, the failure of the university to estimate
the cost of instruction, the limitations of the rebenching process, the
increase in spending on administration, and the underfunding of campuses with a
high percentage of under-represented students. The new audit backs up all of
our past arguments and proposes that the state should increase its funding to
the university in order to reduce the system’s reliance on non-resident
students.
The audit begins by arguing that
due to state funding cuts and internal decisions, the UC has not been serving
the people of California to the best of its ability: “This report concludes
that over the past several years, the university has undermined its commitment
to resident students. Specifically, in response to reduced state funding, the
university made substantial efforts to enroll nonresident students who pay
significantly more tuition than residents. The university’s efforts resulted in
an 82 percent increase in nonresident enrollment from academic years 2010–11
through 2014–15, or 18,000 students, but coincided with a drop in resident
enrollment by 1 percent, or 2,200 students, over that same time period.” As the
number of students from California attending the UC system has stayed flat, the
number of nonresident students has increased dramatically. This statistic alone appears to support our
fears that students from California have been crowded out of the system because
as the population has increased and the number of enrolled students has
increased, the number of in-state students has actually gone down. In a
response to the audit, the UC flatly rejects the facts by offering several
explanations, but the bottom line cannot be denied: as the state reduced its
funding, the UC looked for a way to increase support by enrolling nonresident
students and this reduced the number of students from California in the system.
One way that the UC started to
cater to nonresident students was to lower the admission’s standards for these
high-paying students: “According to the Master Plan for Higher Education in
California, which proposes the roles for each of the State’s institutions of
higher education, the university should only admit nonresidents who possess
academic qualifications that are equivalent to those of the upper half of
residents who are eligible for admission. However, in 2011 the university
relaxed this admission standard to
state that nonresidents need only to “compare favorably” to residents.” The
report here points out that in order to attract more high-paying nonresident
students, it gave them an advantage that went against the Master Plan.
UC likes to claim that it has done
nothing wrong because it still accepts all eligible students from California,
but as the audit points out, this compliance is based on giving students who
did not apply to Merced admissions to a campus that 98% of them will reject: “At
the same time, the university denied admission to an increasing proportion of
qualified residents at the campus to which they applied—nearly 11,000 in
academic year 2014–15 alone—and instead referred them to an alternate
campus. However, only about 2 percent of residents who the university referred actually
enrolled. Moreover, increasing numbers of nonresident students have enrolled in
the five most popular majors that the university offers at the same time that
resident enrollment has generally declined in those same majors.” Not only are
students from California being crowded out of their desired campuses, but they
are also being pushed out of their desired majors.
This blog has stressed that as
students from California are being excluded from a system built out of state
tax dollars, the students who do get in are often funded at unequal rates: “Moreover,
the university’s funding allocation decisions have not completely resolved its
unequal distribution of per-student state funding across its campuses,
resulting in certain campuses continuing to receive less state funds per
student than others. After several reports identified inequity in per‑student
funding among the campuses and a lack of transparency in how the university
distributes that funding, the university embarked on an effort which it refers
to as rebenching. However, we identified several problems with rebenching,
including the fact that the university does not base the formula it uses to
redistribute funds on the amounts it actually costs to educate different types
of students. The university also excluded $886 million in state funds from the
amount it distributes to campuses through per‑student funding for fiscal year
2014–15 for programs that do not relate directly to educating students.
Further, even though the university asserts that the additional revenue from
its increased enrollment of nonresidents allows it to improve education quality
and enroll more residents, the university does not give campuses spending
guidance or track how they use these funds. Lacking such guidance or oversight,
we found campuses spend these funds in an inconsistent manner.” Even
though rebenching was supposed to even out the funding among the campuses, the
result has been an increase in inequity because the unequal distribution of
nonresident tuition far exceeds the small money of rebenched state funds.
Moreover, the UC has continued to refuse to try to calculate the real cost of
educating students, and instead of being transparent, it continues to spend
money on producing trumped up reports.
The UC office of Denial refuses to
admit that the reliance on nonresident student tuition has undermined the
diversity of the student body, but the audit tells a different story: “Admission
decisions have hampered efforts for its student body to reflect the diversity
of the State—only 11 percent of the increasing number of nonresident
undergraduates were from underrepresented minorities in academic year 2014–15.”
In a state that has close to 50% of its population categorized as
underrepresented, the use of nonresident students does indeed reduce diversity
and opportunity.
It is important to stress that as
the diversity of the system decreases, the money spent on each
under-represented student has also decreased: “not including nonresident
revenue in a per-student funding calculation contributes to the persistence of
per-student funding inequities among the campuses. These funding
inequities have continued to disproportionately affect underrepresented
minority students. Specifically, the highest‑funded campuses hen we include nonresident
revenue—Berkeley, Los Angeles, and San Diego—are among the four
campuses with the lowest percentage of underrepresented minority students.” As we have seen throughout the country, the
solution of replacing state funds with nonresident tuition has made college
more unaffordable and unequal for everyone. Students from different states are
being shut out of their own state universities, and so they are having to pay
high tuition to go to out-of-state school, private universities, and for-profit
colleges.
The auditor’s main solution is for
the state to increase its funding to the system so that the UC can reduce the
number of nonresident students and open spaces for resident students: “Implementing
a 5 percent limit on new nonresident enrollment would allow the university to
enroll an equivalent number of additional new resident undergraduate students
per year—about 7,200—more than the number it enrolled in
academic year 2014–15. Requiring the university to enroll these
additional residents would necessitate an increased annual financial commitment
from both the university and the State to compensate for the increased
enrollment of resident undergraduates and the decrease of nonresidents. If the
Legislature were to commit additional funds to the university for the purpose
of meeting agreed-upon enrollment percentages, it could do so using a
phased-in approach.” The UC should welcome this rational approach, but instead,
it can only respond through a blanket denial and rejection.
UC’s main response is to say that
in the next three years, they plan to bring in 10,000 additional students from
California. However, since they are only
getting $5,000 from the state for each student, we have to ask what is going to
happen to the underfunded campuses with the highest number of underrepresented
students from California? The answer is that they will receive an inferior
education with huge classes and little personal attention. This is what
separate and unequal educational funding looks like.
