PTE Funding – Why the 9.5% Discount?
July 20th 2010 at 3:02pm, By Dave Guerin
This is the last post on elements of last week’s speech by Steven Joyce and covers the PTE funding discount of 9.5% (they get less than public providers) that the Minister wants to remove. I was doing lobbying work for a PTE group, NZAPEP, when this funding policy was introduced on Steve Maharey’s watch as Tertiary Education Minister and I have opposed it ever since, whether someone was paying me to do so or not (as is the case now).
You see, the Minister felt that the Government shouldn’t be paying for the capital costs of private providers. The capital component was considered to be 9.5% of the base rate and, hey presto, suddenly PTE funding was 9.5% lower than that for TEIs. Of course, nothing in politics and budgeting is ever simple and the funding cuts were used both to fund a better deal for fee stabilisation – the forerunner of fee maxima – and to scratch an itch that Labour had about high growth in PTE funding. Labour was under pressure at the time from the public sector over both PTE growth and the fee stabilisation funding. The driver was as much the need to find some extra cash as it was to implement some long-held principle.
I recognise that Labour prefers public provision of education (while I prefer competition or a fully private market), but my problem with this policy is not that it restricted funding to PTEs, but that it did so in a financially illiterate way, as Steven Joyce has said. Here are a few reasons why.
- The funding system at the time (and now) was not designed to support separate streams of capital and operating funding. Providers were bulk funded and required to manage their resources to deliver their courses. They could choose whether to invest in, or lease, capital. Providers do (and should) employ widely differing amounts of capital in their delivery. It is impossible to set a meaningful benchmark (but the 9.5% level did almost exactly equate to the increase in the initial fee stabilisation offer).
- Contrary to Maharey’s views, PTEs generally chose to lease capital – this was because there were in an uncertain policy environment and they often preferred to lease space in CBDs than to establish separate campuses. PTEs were not building up physical assets with their funding (whether they were building up financial assets through profits was another issue entirely, and the policy response would have been different if it was deemed a problem).
- The total cost of the courses delivered to a student is made up of a mix of operating (salaries, power, etc) and capital (depreciation, interest on debt, dividends on equity investment) expenses. If the government removed a subsidy that was paying for some of those costs, the natural response of an organisation would be to raise fees (as it still needed income to cover the costs). Maharey tried to suggest that the gap should be covered by private investment, but why would you invest more in an organisation when it was guaranteed to have no return (ie the extra money would just be covering costs)?
- The exacerbating factor in all of this was that PTE funding was reduced at the same time that fee stabilisation came into effect and, a couple of years later, fee maxima. These greatly constrained the ability of PTEs to make up the funding gap.
- I always wondered what would happen if Maharey was buying A4 paper for the Government. Would he tell suppliers that he wouldn’t pay for the capital costs of their factories and therefore was taking some arbitrary percentage off the bill? The PTE funding change was similarly silly.
I agree with Joyce that the PTE funding discount policy is financially illiterate. I have no problem with Labour saying “we don’t like PTEs as much as other providers, so we’ll cut their funding”. It would be a bad policy, but it would be honest adn expected by everyone. I do have a problem with manufacturing a silly argument to cover for a funding cut that you need to make an increase elsewhere.
14 Responses to PTE Funding – Why the 9.5% Discount?
Jim Doyle
July 20th, 2010 at 4:04 pm
OK but if it’s good for the tertiary sector it should also apply to Independent schools and Integrated schools.
Stephen Marshall
July 21st, 2010 at 9:41 am
Fine, but make the PTEs place a proportion of the funding in trust to cover the inevitable dishonest and incompetent failures that leave the rest of the sector dealing with bad PR and having to spend more to persuade foreign governments that NZ is not the wild west…
Dave Guerin
July 21st, 2010 at 9:46 am
Stephen, this issue was dealt with about five years ago when Modern Age Institute of Learning went under spectacularly. All PTEs must have student fee protection and most use a Public Trust run system where all student fees are paid into an account and are released on a weekly basis. Since Modern Age, no PTE has closed with students being left greatly out of pocket and very, very few have even hit the papers. None have generated any bad PR that is comparable to what happened in the past. The system does cost but it has removed the main reputational risk issue for PTEs.
Dave Guerin
July 21st, 2010 at 9:48 am
And Jim, I’ve got no problem with that extension – the ECE sector already has open and equal funding, other than some small start-up grants.
Stephen Marshall
July 21st, 2010 at 9:54 am
Not to mention the problem that most, if not all, public providers cross subsidise internally so that ordinary New Zealanders with talent can consider careers in science and some of the other incredibly expensive subjects rather than everyone being forced to be lawyers or accountants because they earn more (but produce nothing of value – so much for economic growth). Some PTE’s are excellent, but full competition would see a rush to provide the cheap high volume courses (Business IT anyone?) while leaving the taxpayer to cover the remaining cost.
The problem I have with the pure economic approach that seems to be being pushed on these pages at the moment is that you’re inconsistent. If pure economics drives everything then why are we talking about special cases for young people or Maori? If someone older has the money why not? If Maori students need expensive support to remediate woeful performance as a demographic why not make them pay more rather than give them special treatment?
Why can’t you admit the vital role that public education plays in the good of a nation – its so important that it should be treated specially by the Government – private business won’t carry social outcomes unless we the taxpayer pay a healthy profit for it. Personally I don’t want our education system to turn into a commercial free for all with a limited range of cut-price providers operating out of tax shelters offering barely adequate basics while everyone with talent and/or money runs to Australia as fast as they can (and who’ll pay for the subsidies for under-represented groups then?).
Reading Joyce’s speech left me with the sense that some of the ideas were reasonable and I agree that New Zealand’s public tertiary providers benefit from political oversight, but that is a long way from agreeing with the proposition that the free market will magically deliver a high functioning, efficient and reasonably priced education system – give me any evidence at all that it has worked anywhere without the society as a whole already being wealthy and well-educated.
Dave Guerin
July 21st, 2010 at 10:05 am
It’s not a dichotomy Stephen – PTEs aren’t all bad and public providers aren’t all good. An uncapped funding system resulted in many PTEs, many ITPs and many wananga doing stupid things in the early 2000s (CPIT’s Cool IT anyone?). The problem was policy design more than underlying ownership.
I’d rather not get into the full public/private debate though because it needs more time and space to do it justice than I have right now, and the issues you’ve raised all deserve a full response. I might come back to it later in the year as a full series of posts.
If you’d like a fuller response sooner, let me know.
Stephen Marshall
July 21st, 2010 at 10:21 am
Hi Dave, a fuller debate at some point would be good. I guess I’m responding to the constant public-sector bashing I see in the comments here. The reality is that the public education sector in New Zealand generates a very well-regarded set of qualifications at a very low cost (provided you don’t make simple-minded comparisons using the total student loan cost – most of that is living expenses not the direct cost of the education itself). I just recently visited a mid range Australian university that thanks to their funding environment is right now undertaking $200 million in capital works to improve campus facilities – and it is not a special event for them, just the latest in a long run of investment by Australia in its future…
Dave Guerin
July 21st, 2010 at 10:30 am
I don’t think anyone’s trying to bash the public sector. I’m certainly not. There’s a lot of scepticism and I think that’s healthy in this sort of site. If there’s more scepticism of the public setcor, it probably relates more to its relative size and media/political coverage.
I will do a series later in the year too.
Jim Doyle
July 21st, 2010 at 10:48 am
There is a practical problem with all of this public v private stuff. Sure, the pure argument (level playing field, let the market rule etc) is attractive on the surface. But the reality is that the playing field is not level.
A private for-profit provider will think and act like a business and in doing so will cherry-pick, go fo the high volume/low cost courses. Public institutions can’t do that, they have a wider mandate.
The reality is that public institutions can’t compete with a commercially-minded and driven provider. In fact if they start to, they get into serious trouble a la Cool-IT. Why? Precisely because they have acted like a commercial operation.
In addition, if you allow for-profit providers to operate ‘equally’ they will cherry pick and in doing so will marginalise the operation of public institutions.
In short if a public institution acts like private organisation it gets clobbered and if a private organisation acts like a public institution it will probably not make any money.
Dean Carroll
July 21st, 2010 at 1:51 pm
if you come from a student perspective maybe, things start to clarify a little, I find.
Far too much discussion starts at an institutional level, normally by people in institutions or their bidding agents.
The principle should be that that level of student subsidy for similar courses should be the same. The QA and other structures around this (including shape of sector) are other mitigating factors.
So broadly I am in favour of Dave’s position with a number of caveats. You have to get Quality Assurance right and you have to get the market players (students) properly informed and incentived through a reform of the funding system. But students (all other things being equal) doing the same courses should get the same level of funding. Period. Private or public. If there are other functions that only public unis do fund them for it.
Of course Dave is totally 100% right re: Maharey on this. I am struggling to find a better example of his muddle-headedness on tertiary education issues than this. What he wanted to do was find a ‘place’ for private providers. Instead he mucked around with formulae to avoid having to make clear cut decisions about the role and purpose of PTEs in the mix. Later on he locked in first-mover advantage much to the enormous profit of the existing providers (but not necessarily for the students). Normal transmission in other words.
Stephen Marshall
July 21st, 2010 at 11:32 pm
“You have to get Quality Assurance right”
Now if only we could do proper double-blind tests… tell me what QA system actually measures the benefit experienced by an individual student that they would or would not get from studying at a given provider X as opposed to Y? Everything else, particularly the current set of indicators, measures “activity” or input costs. ‘Quality’ in higher education is a political construct reflecting the stakeholders with power. I think this is the real issue underlying much of the debate here, its easy to describe things that are poor quality, particularly after the fact, while comprehensively describing good quality is probably not possible. As far as I can tell, what the Government wants at the moment is ‘cheap’ – a workforce educated enough to work in factories but not too smart because then they might ask difficult questions, with a much reduced university sector educating the well off (with a light sprinkling of minorities to deflect any residual tough questions).
Must be getting late, my cynicism is on a higher setting than normal…
Dean Carroll
July 22nd, 2010 at 9:31 am
In my experience Stephen successive New Zealand governments have no idea what they want from tertiary education (NB: that is restricted to the last three years of Shipley and then the Clark Govt). So ascribing a master plan is giving them far too much credit in my view.
). The issue around QA is that for the Govt to be as confident as it can be around the use of public funds in a funding model devolved to students (unless you follow Mr Doyle’s non-formulaic model) there needs to be good market regulation (this is what NZQA in effect does although I have never met anyone at NZQA who understands that this is there role and therefore ergo how to go about it: but that is another matter). I could go on … but I have for ten years
You need to unpack my blog comment … similar funding for similar courses etc etc. The real issue is that for all the heat there is very little light in ANY discussion in NZ around issues of higher, vocational/industry further, adult and community education. To suggest that first there is a plan and then secondly that this is being carried out in some multi-sector way (as I inferred, you may well not have meant to imply it) is way to wishful thinking. The only group that even comes close to doing that (in my opinion) is Jeremy Baker’s crowd at the ITF. You certainly won’t find anything like that thinking within the TEC (that would require leadership by Commissioners- tee hee) and NZVCC only think in terms of varsities.
On your substantive point re: negating my views. Assessment of benefit is probably best made by students (i might be wrong but I am at least consistently wrong Stephen
Stephen Marshall
July 22nd, 2010 at 10:36 am
Dean, I agree that the idea there is some master plan is laughable (and would be unworkable in detail anyway – the world moves to fast and too much of the environment is determined by folk in the US/EU) but that doesn’t prevent an ideological slant on decision making and analysis (I do it all the time, so do Governments – its called politics).
Going back to the topic of QA – you (and others lurking) might find these articles interesting:
http://www.informaworld.com/smpp/content~db=all~content=a713678146
http://www.unc.edu/ppaq/docs/CEQ_final.pdf
They both point out systemic flaws in the QA systems use in Australia, which are arguably much better developed than NZ ones. Interestingly, the only solution the first paper identifies to the problem of improving the quality of analysis is to remove institutional competition from the mix – something that will never happen in market-driven systems.
Dean Carroll
July 23rd, 2010 at 9:12 am
I have argued for a University of New Zealand federal model for ten years now (integrated with the polytechnics a’la communities colleges with an efficient academic pipeline).