Executive summary:
In 2008 the United States spent 0.97% of total outlays on federal student aid, funding higher (tertiary) education programs through the Department of Education, and to support federal student loan origination.[i] There are clear social and economic benefits associated with increasing higher education attainment in the United States. There are simple and low-cost solutions to increasing the availability of financing through federal student loans—an option that facilitates the pursuit of higher education. This post proposes policy recommendations to Congress, and addresses the following questions: (1) Is it worth having a large portion of the US population attain tertiary education? (2) What are some problems with the current federal policy? (3) Why should the United States government provide financing for higher education? (4) What are the costs to the United States? (5) Why are federal student loans better than nonfederal student loans?
Policy Recommendations in Brief:
-Change the caps on federal student loans and match them to the published cost of tuition, fees, room and board of each college and university participating in the federal student aid program.
-Separate federal student loans from the federal financial aid application process, or replace the Free Application for Federal Student Aid with a very basic application and deliver needed income information directly from the Internal Revenue Service to the Department of Education.
-Fix the annual percentage rate of federal student loans to the federal government’s cost of borrowing.
-Overturn the portion of the Bankruptcy Abuse Prevention and Consumer Protection Act of 2005 which made private student loans non-dischargeable in personal bankruptcy.
-Advertise the availability of federal student loans separately from the availability of federal student aid.
On American Higher Education: Strengthening the Federal Student Loan Program
Regarding higher (tertiary) education, President Obama’s goal is for America to have the highest portion of college graduates in the world by 2020.[ii] America is ranked 4th, in the latest report[iii] by the Organization for Economic Co-operation and Development (OECD), among the 31 OECD countries in terms of percentage by country population that has attained tertiary education—ranked 6th if you include the OECD partner countries Brazil, Estonia, Israel, Russian Federation, and Slovenia. By volume, the US has the 33.5% of the total OECD 25-64 year-old population with tertiary education (total population is almost 200 million across 31 of the OECD countries, 2008).
Is it worth having a large portion of the US population attain tertiary education?
In the case of the United States, I argue the answer is yes. The ability to innovate is this country’s bread and butter; i.e., e-commerce, web 2.0, human flight, the light bulb, etc. With more people obtaining the ability to think critically—a major learning outcome of higher education—our economy is in a better position to grow through innovation. Yet, it is important to note that not all economies are predisposed to benefit from such a blunt policy. Grover J. “Russ” Whitehurst, a Senior Fellow at Brookings focusing on governance studies, recently wrote about the relationship between years of schooling and the impact to the economy. He referenced econometric studies that find there is a small but consistently positive relationship between long-term growth and the level of education. However, Whitehurst points to the variability in the data from country to country and suggests that blindly marching towards a generic goal may not be the best policy for every country.[iv]
What are some problems with the current federal policy?
Let’s focus on the policies that significantly impact the growing portion of students borrowing nonfederal loans to pay for tertiary education. Later in this post I will discuss why federal loans are materially better than nonfederal loans—if you are not already convinced, for now keep an opened mind. First, some color on the industry; the Congressional Budget Office estimates that in the 2007-2008 academic year the market for private student loans was about one-quarter the size of the market for federal student lending, by dollar volume.[v] There are two main policies I have issue with, the process for applying for federal student loans and the current cap on federal student loans.
The complexity of the Free Application for Federal Student Aid (FAFSA) and the administration of the federal student loan program are making it more difficult for students to borrow federal student loans. In a 2010 College Board report[vi] on student debt, Sandy Baum and Patricia Steele find that dependent students from families with incomes higher than $100,000 have the highest concentration of nonfederal debt. They link this phenomenon to the reality that many of these families do not apply for federal financial aid and therefore are never offered federal student loans. The complexity of the federal student loan process impacts more than just dependent students from higher income families. Students from low-income families and students with limited English proficiency are also at a disadvantage when filing for financial aid. According to a 2008 College Board report[vii] on reforming federal student aid, the FAFSA can be intimidating as it asks for more detailed information than the Internal Revenue Service (IRS) requests from most low-income families. One of the recommendations set out by the report is for the elimination of the FAFSA altogether and to simply have the IRS provide the required information directly to the Department of Education.
There is a cap on federal student loans that complicates obtaining financing for tertiary education. The general culture in the United States is for families to save for college education. However, for those dependents that cannot rely on parents to cover the costs of college and for the independents that do not have college savings in place, financing is the only option. Some color: the cap of federal student loans is different between dependents and independent undergraduates (including dependent students whose parents are unable to obtain PLUS loans). The aggregate limit on subsidized and unsubsidized federal loans for dependent undergraduates is $31,000.[viii] For independent students and dependent students whose parents are unable to obtain PLUS loans the aggregate limit is $57,500. According to a 2010 College Board report[ix], the published in-state tuition and fees at public four-year institutions average $7,605 in the 2010-11 academic year. Extrapolating this yearly cost to an aggregate amount, the total cost of in-state tuition and fees at public four-year institutions is on average $30,420. At first glance it appears that the $31,000 cap on federal student loans works well to cover the average college cost of $30,420. However, the caps on these loans restrict students’ ability to exercise options when selecting a school. For instance, if the student wants to live on campus the average total charges, including tuition and fees and room and board, are $16,140 (an aggregate of $64,560). For an out-of-state public four-year college or university the average cost of tuition and fees is $19,595 (an aggregate of $78,380) and $28,130 for average total charges that include room and board (an aggregate of $112,520).
Why should the United States government provide financing for higher education?
First, let’s point out that financing for higher education is not a social welfare program. Financing is not the same as grants or tax breaks—loans are debt instruments that are paid back with interest. With that said there are many advantages for the United States government to provide low-cost financing for education. There are compelling economic and social benefits associated with a country’s population attaining a higher education.
An increase in earnings is a key measure of the economic benefit of higher education. According to the key indicators on education from the OECD[x], on average the countries tracked report a 53% premium on earnings from employment after tertiary education over those individuals with only upper secondary and post-secondary non-tertiary education (the latter being High School and Technical Schools in the United States). In the United States the earnings premium is higher than the average—males earn 88% more and females earn 71% more than their counterparts that did not attain tertiary education. Increased earnings translate into greater tax revenue both through an income tax and consumption taxes.
The social benefits associated with attaining higher education are also analyzed by the OECD. In their 2010 Education at a Glance report[xi] the OECD data suggest that moving from one level of education to another has a positive correlation to higher levels of self-reported health, political interest, and interpersonal trust. Most countries—if not all—have a vested interest in improving the general health of the population. As the data show, attaining a higher education improves the general health of the individual; this translates into reduced public expenditures on healthcare. Additionally, societies—especially democracies—benefit from an increase in civic and political involvement. Furthermore, individuals with higher education tend to believe that most people can be trusted—the resultant of an increase in tolerance, acceptance of diversity and recognition of the benefits from social cohesion. The OECD also reasons that an indirect increase in trust may result from the likelihood that individuals with a higher education will live and work in similar socioeconomic conditions, where subversive and criminal activity is less likely.
What are the costs to the United States?
In their latest digest (2009), the National Center for Education Statistics (NCES) estimated that in fiscal year 2009 the United States spent $37.2 billion[xii] on post-secondary (tertiary) education.[xiii] Most of the money ($27.7 billion) was spent by the Department of Education on items like: (a) Student Financial Assistance ($23.2 billion)—of which $18.4 billion[xiv] are Pell Grants—and other Federal Student Aid programs that include other grants, loans, and work-study to help students pay for education beyond high school; (b) outlays of $352 million for the Federal Family Education Loan Program and outlays of $1.4 billion for the Federal Direct Student Loan program, which—after vigilantly decoding the notes to the principal financial statements of the Office of the Under Secretary for Federal Student Aid—should be costs associated with interest subsidies, modification of subsidy cost, loan forgiveness, defaults, etc; and (c) Higher Education Program outlays of $2.3 billion, which goes to administering and supporting projects that broaden access to higher education (it funds projects that are awarded to institutions of higher education, non-profit organizations and agencies, and state agencies). The rest of the money ($9.5 billion) is spent by other federal agencies—USDA, DoD, Commerce, Energy, HHS, DHS, HUD, Interior, State, DoT, Treasury, and the VA are the major spenders—on programs like tuition assistance for military personnel, Senior Reserve Officers Training Corps, National Institutes of Health training grants, the Department of State’s Education exchange, All-volunteer-force educational assistance for veterans, and the National Science Foundation to list a few.
Why are federal student loans better than nonfederal student loans?
Federal student loans have advantages when compared to private, nonfederal student loans. The main advantage between these types of loans is the lower interest rate paid by the borrower of federal student loans. The current interest rate for a Stafford Loan is 6.80% fixed. I went to bankrate.com and searched for a $10,000 undergraduate loan for my alma mater. I found one from a well-know private bank with a variable APR ranging between 3.62% and 11.35%, the final rate dependent on your personal credit score. Considering the credit rating of 18 year-olds largely varies, I contend that most are not eligible for the lowest variable APR. Also, we are in the lowest interest rate environment in relevant history with the Federal Funds rate literally at zero percent (0 to 25 basis points, but with the actual for the past two years at an average of 17 basis points—according to the Federal Reserve’s H.15 statistical Release[xv]—I can confidently say that interest rates are literally the lowest they can go). As soon as interest rates trend back to more typical levels, the average for that commercial variable APR will trend well beyond the fixed APR of federal student loans.
Like the vast majority of student loans, federal student loans tend not to be forgiven through personal bankruptcy. In general, when compared to commercial loans in bankruptcy proceedings—where most debts may be forgiven—student loans owed to a public school or government body is typically not forgiven. In rare cases, these types of student loans are forgiven if a court rules that making payments would create an undue hardship. Most people do not file for bankruptcy, and therefore the positive of having a lower interest rate for federal loans outweighs the negative of a lifetime commitment—not the case for nonfederal loans in my opinion due to the more stringent terms and higher APR. Moreover, there are mitigating factors that lessen the impact of enduring federal student loan indebtedness while increasing flexibility if you run into financial trouble down the road. One example is the Income-Based Repayment Plan for federal student loans that caps the annual amount eligible borrowers pay to 15% of their income (10% starting July 2014). Also, after 25 years of making payments under the Income-Based Repayment Plan the remaining loan balance is forgiven (20 years starting July 2014); 10 years for public service employees. The Income-Based Repayment Plan helps make federal student loan payments more manageable for individuals that have high levels of debt relative to their income; it is a preventative measure by the government to reduce outright loan defaults.
A discussion on suggested policy improvements:
-Change the caps on federal student loans and match them to the published cost of tuition, fees, room and board of each college and university participating in the federal student aid program.
--Decrease drop-out rates by increasing student’s “skin in the game” through the expansion of federal student loan availability. Unlike some countries that provide free higher education, I admire the system the United States has developed. Students have some skin in the game, meaning they have to take on some financial responsibility for their education. These students are likely to stay in school and finish what they started for the simple reason that they are paying for it. My student loans gave me an incentive to get the most out of my college experience and I suspect that most people do not take things for granted when they are the ones on the hook financially.
--The arbitrary caps on federal student loans should be replaced with caps that match the tuition and fees and room and board as published by the specific schools these students are attending. Both for in-state and out-of-state students.
-Separate federal student loans from the federal financial aid application process, or replace the Free Application for Federal Student Aid with a very basic application and deliver needed income information directly from the Internal Revenue Service to the Department of Education.
--I agree with the recommendation from the College Board report for reforming federal student aid, eliminate the FAFSA. I would replace the FAFSA with a simpler form that captures relevant information not already able to be provided to the Department of Education by the Internal Revenue Service.
--This will increase the availability of federal student loans to the general public by eliminating bureaucratic barriers of entry.
-Fix the annual percentage rate of federal student loans to the federal government’s cost of borrowing.
--Federal student loan interest rates should be pegged to the cost of borrowing of the Federal government. Currently, a 10-year federal student loan APR is fixed at 6.80% while the average yield on the 10-year treasury in January 2011 was 3.39%. Why does the government need to make a profit on the 341 basis point spread between these two financial instruments? As federal student loans are so hard to forgive, even in personal bankruptcy, the cost of making a student loan should match the cost associated with the government borrowing the funds from the public market. Any losses due to loan forgiveness and administrative costs of the Federal Direct Loan program should be rolled into federal expenditures on education; as described in the next section, the United States can afford it—the federal government spends a very small potion (0.97%) of total outlays on higher education. If costs are too high, Congress should address increasing cost-saving measures within the infrastructure of the Department of Education and not pass on the costs to the customer.
-Overturn the portion of the Bankruptcy Abuse Prevention and Consumer Protection Act of 2005 which made private student loans non-dischargeable in personal bankruptcy.
--Private student loans have less flexibility and generally have a higher APR. Why are they treated differently in bankruptcy proceedings from other similar loans? If I have a student loan and a line of credit with a major bank and the APR of both financial instruments are comparable, why is one dischargeable in personal bankruptcy and not the other? As a savvy consumer I want options. Give me the option to choose a lower APR knowing that I am stuck with the federal student loan for life, or the higher APR from a private lender knowing that if things do not go well I can eventually obtain a clean slate.
-Advertise the availability of federal student loans separately from the availability of federal student aid.
--The studies referenced in this post indicate that dependents from higher-income families have a higher percentage of non-federal student loans; this may be due to lack of knowledge about the current application process. The government may increase awareness of financing opportunities if they make an effort to advertise the availability of federal student loans separate from promoting general federal financial aid.
At the end of the day, the United States spent 0.97% of the total federal outlays on funding higher education programs through the Department of Education, federal student aid, and to support federal student loan origination in 2008.[i] This is relatively small when looking at the outlays for other programs; for example, national defense spending is 20.66% of total outlays. The studies reviewed in this post provide evidence that higher education attainment lowers the cost of healthcare, reduces crime, and fosters civic engagement. It appears to me that any additional costs associated with implementing the changes listed in the previous section will not significantly increase the overall real dollars spent by the government; though, the changes will significantly lower the barriers to attaining affordable financing for tertiary education.
Notes:
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[i] National defense outlays for 2008 were $616.07 billion, and total outlays were $2.98 trillion, according to historical table 4.2 of the Budget of the United States Government. Total post-secondary education spending for 2008 by the Department of Education was $28.84 billion according to the 2009 Digest of Education Statistics put forth by the NCES.
[ii] Obama, Barack. Remarks by the President and Dr. Jill Biden at Signing of Health Care and Education Reconciliation Act. Northern Virginia Community College, Alexandria, Virginia. 30 March 2010. (http://www.whitehouse.gov/the-press-office/remarks-president-and-dr-jill-biden-signing-health-care-and-education-reconciliatio).
[iii] Education at a Glance 2010: OECD Indicators (OECD, 2010), p. 36. (http://www.oecd.org/document/52/0,3746,en_2649_39263238_45897844_1_1_1_1,00.html#hto).
[iv] Grover J. Whitehurst, Higher Education and the Economy (Washington: The Brookings Institution. 2010). (http://www.brookings.edu/opinions/2010/0809_obama_college_whitehurst.aspx).
[v] Congressional Budget Office, Costs and Policy Options for Federal Student Loan Programs (Washington: 2010). (http://www.cbo.gov/ftpdocs/110xx/doc11043/03-25-StudentLoans.pdf).
[vi] Sandy Baum and Patricia Steele, Who Borrows Most? Bachelor’s Degree Recipients with High Levels of Student Debt (The College Board Advocacy & Policy Center. 2010), p. 9. (http://advocacy.collegeboard.org/sites/default/files/Trends-Who-Borrows-Most-Brief.pdf).
[vii] The College Board Rethinking Student Aid Study Group, Fulfilling the Commitment: Recommendations for Reforming Federal Student Aid in Brief (The College Board, 2008), p. 5. (http://advocacy.collegeboard.org/sites/default/files/rethinking-stu-aid-fulfilling-commitment-recommendations-in-brief.pdf).
[viii] See the Federal Student Aid website on the annual and aggregate limits for Direct Stafford Loans, http://studentaid.ed.gov/PORTALSWebApp/students/english/studentloans.jsp#02.
[ix] Sandy Baum and Jennifer Ma, Trends in College Pricing 2010 (The College Board Advocacy & Policy Center. 2010), p. 3. (http://trends.collegeboard.org/downloads/College_Pricing_2010.pdf).
[x] See the OECD website on key indicators on education, http://www.oecd.org/document/55/0,3746,en_2649_37455_46349815_1_1_1_37455,00.html.
[xi] Education at a Glance 2010: OECD Indicators (OECD, 2010), pp. 152-153. (http://www.oecd.org/document/52/0,3746,en_2649_39263238_45897844_1_1_1_1,00.html#hto).
[xii] Thomas Snyder and Sally Dillow, Digest of Education Statistics 2009 (NCES 2009-541). (U.S. Department of Education, 2009). (http://nces.ed.gov/pubsearch/pubsinfo.asp?pubid=2010013).
[xiii] Post-secondary education, as defined by the US Department of Education, is comparable to tertiary education as defined by the OECD.
[xiv] Federal Student Aid Office, U.S. Department of Education, Annual Report 2009 (Washington: 2009), p. 5. (http://federalstudentaid.ed.gov/static/gw/docs/fsa_annual_report_2009_508compliant.pdf).
[xv] See the Federal Reserve Statistical Release website on the annual Federal funds effective rates, http://www.federalreserve.gov/releases/h15/data/Annual/H15_FF_O.txt.
Full article titled "On American Higher Education: Strengthening the Federal Student Loan Program" is also available on my blog.
http://www.mauriciomattos.com/blog/2011/2/21/on-american-higher-education-strengthening-the-federal-stude.html
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