Time to Turn Attention to a Different Debt Limit: Downsize Federal Student Loan Programs
by Thomas D. Parker
July 25, 2011
I have spent much of my working life studying and promoting student loans. As a good liberal Democrat, I spent years arguing for the expansion of the old Federal Family Education Loan Program (FFELP) which had its roots in Lyndon Johnson’s War on Poverty. My professional life included stints working for one of the nonprofit FFELP agencies and being a co-founder of an entirely private nonprofit, non-federal student loan guarantor. Currently, I consult to a for-profit student loan company.
I am surprised, therefore, to hear myself saying that it is time to start downsizing the federal student loan programs.
I am watching with interest to see how the new version of our federal student loan program, the Federal Direct Student Loan Program (FDLP) works out. I hope it is successful.
But I am increasingly worried that in the extensive and prolonged policy debates between the FFELP and the FDLP backers, we lost sight of bigger and more ominous issues around student loans. We concentrated on the delivery system—who should administer the program and where should the capital for loans come from. The Democratic congress and administration came out in favor of having the federal government assume completely the administrative and financing roles taking all student loans onto the Federal balance sheet. Republicans cried "socialism." Democrats pointed to hoped-for efficiencies and savings.
But all the noise over the delivery system masked the fact that debt burden for students was exploding and default rates were increasing.
Historically, this has always been a concern, but study after study going back to the early ‘90’s found that debt burden and default rates were not excessive and that the value of a college education was well worth the level of debt that most students were accumulating. Many of these studies were conducted by the Institute for higher Education Policy (IHEP) in Washington D.C., where I am currently a senior associate.
The most recent IHEP study, however, paints a very different picture. Through our federal loan programs, it suggests, we are creating large numbers of young people struggling with and failing to repay these loans. We have raised the limits on amounts that students can borrow and through our federal PLUS loan program, we are allowing parents and graduate students to borrow up to the full cost of education with no limits. As has been widely reported the level of student loan debt in the U.S. now exceeds credit card debt. Our students will soon be wallowing in more than a trillion dollars in student loan debt.
Meanwhile everyone knows what is happening to the cost of higher education.
Again, I never thought I would find myself saying this, but I think it is time to take steps to discourage borrowing for higher education. We should slowly over a period of time substantially reduce the government student loan programs. My reason for this is primarily to protect students from untenable debt burden. I realize there will be cases where students with reduced recourse to government loans would have to choose lower-cost alternatives—community colleges instead of expensive for profit schools or public colleges and universities over high cost private institutions, but I’m not sure this is a bad thing. We have to begin to address the issue of what the best financial fit is for students. We simply can’t afford to have a system in which the federal government encourages so much student debt.
I also think a reduction in federal student loans would help to address the issue of out-of-control college costs and the growing national debt.
There has long been concern that one reason colleges can increase their prices at such a rapid rate is that students and their parents can borrow at favorable terms from the federal loan programs. In the case of PLUS, the government offers a program which will lend at good rates with minimal credit requirements for the entire cost of education, no matter what the colleges charge. It’s a deal which the car companies or any other industry reliant on consumer credit financing would envy. A reduction in federal loan availability might just encourage higher education to think a bit more seriously about reducing the rate of increase in its costs or developing more cost-efficient ways to deliver high-quality education.
Finally, I don’t think we can ignore the cost to the government of this explosive growth in the amount of federal student loans on the federal balance sheet. Currently the federal number-crunchers tell us that these loan programs will not be all that costly. In fact, they say that because the cost of money to the government is much lower that the interest rates charged, the government actually makes money on student loans (one might wonder why this should be). But cost is dependent not just on the spread between cost of money and interest charged, but on among other things, future default rates. The government projects that future default rates will be moderate enough to ensure profit. But our experience with government cost estimates doesn’t give much comfort. Think the Big Dig or any of numerous Defense Department weapons systems.
Let’s save our students from crushing debt, help our colleges control costs, and save Uncle Sam a buck or two. It’s time to start reducing the size of the huge federal student loan system.
Thomas D. Parker is senior associate at the Washington, D.C.- based Institute for Higher Education Policy (IHEP), director of IHEP’s Global Center on Private Financing of Higher Education, and a consultant to the First Marblehead Corporation.
Mr. Parker has clearly identified the consequences of our debt-based funding of college access. The Higher Education Act’s original principles of “college access and choice” are slowly being eroded by tight budgets, increased costs, the reliance on loans, and the fear of debt. But while the best form of debt management is no loans, the best form of college access is one with student choice. Certainly, all students and parents should enter into college borrowing with eyes wide open, aware of their responsibilities and the future ramifications of the debt. But to reduce students’ options based on their “financial fit” would threaten the gains we’ve made in college access over the past 50 years, and would create an even further divide between the haves and have-nots in our society. While we need to control costs, develop more grant funding and reduce our reliance on loans, we also need to do a better job of proactively helping borrowers manage their education debt. Congress has supplied many remedies to help federal student loan borrowers manage their debt (Income-Based Repayment, Public Service Loan Forgiveness, hardship deferments, etc.) but they have supplied no effective way of communicating these programs. With the right combination of information, personal responsibility and federal assistance, federal student loans most often can be managed successfully. Before downsizing the federal student loan program, we should increase the program’s proactive communication to teach borrowers how to maximize their rights and make the debt more manageable.
Dr. Anthony G ZIagos, Sr.
I agree with Mr. Parker's observations. It is refreshing to someone
revising their misguided past. The cost of education has far exceeded the quality of the delivery system and the content.
http://www.stonehill.edu Eileen O’Leary
Tom Parker and Paul Combe both present rational and thoughtful comments on the state of student borrowing. The real issue on the table is what is reasonable when it comes to borrowing for higher education and, if borrowing is necessary, what is the best way to provide that funding. As a financial aid administrator at a private institution for nearly 3 decades, I can speak from the position of one who interacts with families on a daily basis to discuss this exact issue.
Tom is suggesting that reductions in government student/parent loan programs for education is a reasonable way to put downward pressure on the trend of increasing costs for tuition, or at least moving students to more affordable institutions. Some older studies have shown that the availability of student loans does put moderate upward pressure on the cost of education. But we must also acknowledge that there are simply not enough seats nationwide in the public education sector to absorb all of these students who are currently being denied access as state governments reduce their commitments to public higher education.
Moveover, the underlying reality is that borrowing does not deter enrollment for many/most students, and if federal loans are not available or are insufficient, they will turn to the private education loan market. These loans have higher fees and interest rates, and no options for forgiveness, forbearance, or other humane to assist them through difficult repayment times. I predict, with experience as my teacher, that a reduction in the federal education loan programs would result in a mirror increase in private education loans that would be extremely detrimental to those who would continue to borrow to finance their higher education. If we think government loans present challenges in repayment, we should never purposefully or otherwise push students to the private education loan system as an alternative.
http://www.coach2college.com Shelley Honeycutt
When you are allowed to be unclear with consumers you will always find problems. If a student’s “average student debt” was really $24,000…even at 6.8% this is manageable debt. However they are typically juggling private loan debt at double or triple their Federal debt! I see them everyday in my office- crying.
Oh and Mom and Dad can’t help them out because they were allowed to over-borrow for all of their children at 7.9% with 4% fees which they deferred repayment for FOUR years.
Here is a solution:
1. Make colleges quote actual “average debt” for their graduates. Not just Stafford debt. Now the consumer can make a clear decision with honest data.
2. Make PLUS loans immediate repayment loans at a reasonable rate. Also require that the borrower make enough to cover the monthly payments. This will help parents only borrow what they can afford.
3. Change Federal consolidation terms from 30 years to 20 years maximum. 30 years of debt is life-long debt and overwhelming.
Most of us would never finance a car at these terms never mind a college education. Parents and students have a bad case of bumper sticker syndrome. They want to put a brand name college bumper sticker on their SUV and it is costing them their retirement and life-long debt for their students.
mike ranger
I think it should be noted that the author is a consultant to First Marblehead - an organization that pioneered private student loans. Through financial contributions and lobbying, the student loan industry was able to get John Boehner and Buck McKeon to successfully push to have private student loans exempt from bankruptcy meaning that your private student loans that have absolutely nothing to do with taxpayers or the government, cannot be discharged in bankruptcy.
Student Loan Reform helped to eliminate many of the shady deals and even shadier characters. Sallie Mae, in one fiscal year per SEC filings, made more money from fees and penalties associated with defaults than they made servicing loans - guess that helped pay for their three corporate jets, the CEO's four mansions and the CEO's personal and private 18 hole golf course.
Stay as far away from private debt/private student loans as you possibly can!!!!
Craigie
When a bank lends someone $5,000 to expand a small business or buy a car, that is not a loss. It is an asset on the bank's books. Similarly, Direct Loans are assets for the federal government and taxpayer. Just like a bank, there is a reserve for bad debts. However, if banking was pure loss, there would have been no banks over the past few hundred years! A bank estimates the repayment cash flow over the next few decades and that is the basis for calculating profit.
The author responds … Tom Parker
I agree with "Craigie" that banks estimate cash flow over the life of the loan to determine the value of the asset. If their estimates are mistaken, especially with regard to default rates, the asset can turn negative. Part of my argument is that the federal government is underestimating future defaults in the asset class. These are, after all, loans to young people with little or no credit history, and there is no physical collateral. A better argument is that the real asset is the aggregate gain in higher education attainment, a collective national asset worth more than any negative cash flow generated by the loans.
This collective positive must be then be weighed against the negatives encountered when the education received by the individual is not useful in earning enough money to pay back extensive debt. Income contingency can help with this problem. The Thai government (which I have consulted for in the past on student loan issues) recently announced that student loan defaults have become such a budgetary strain that they will begin to combine income contingent loans with a plan to make student loan availability dependent in part on a student's projected future employment prospects.
I have noticed that even though the website asks commentators to identify their institutional affiliations or special interest in the topics at hand, no one seems to do it.
Tom Parker
Higher Ed Joblink
Up-to-the-minute job postings from New England Higher Education Recruitment Consortium
Time to Turn Attention to a Different Debt Limit: Downsize Federal Student Loan Programs
by Thomas D. Parker
July 25, 2011
I have spent much of my working life studying and promoting student loans. As a good liberal Democrat, I spent years arguing for the expansion of the old Federal Family Education Loan Program (FFELP) which had its roots in Lyndon Johnson’s War on Poverty. My professional life included stints working for one of the nonprofit FFELP agencies and being a co-founder of an entirely private nonprofit, non-federal student loan guarantor. Currently, I consult to a for-profit student loan company.
I am surprised, therefore, to hear myself saying that it is time to start downsizing the federal student loan programs.
I am watching with interest to see how the new version of our federal student loan program, the Federal Direct Student Loan Program (FDLP) works out. I hope it is successful.
But I am increasingly worried that in the extensive and prolonged policy debates between the FFELP and the FDLP backers, we lost sight of bigger and more ominous issues around student loans. We concentrated on the delivery system—who should administer the program and where should the capital for loans come from. The Democratic congress and administration came out in favor of having the federal government assume completely the administrative and financing roles taking all student loans onto the Federal balance sheet. Republicans cried "socialism." Democrats pointed to hoped-for efficiencies and savings.
But all the noise over the delivery system masked the fact that debt burden for students was exploding and default rates were increasing.
Historically, this has always been a concern, but study after study going back to the early ‘90’s found that debt burden and default rates were not excessive and that the value of a college education was well worth the level of debt that most students were accumulating. Many of these studies were conducted by the Institute for higher Education Policy (IHEP) in Washington D.C., where I am currently a senior associate.
The most recent IHEP study, however, paints a very different picture. Through our federal loan programs, it suggests, we are creating large numbers of young people struggling with and failing to repay these loans. We have raised the limits on amounts that students can borrow and through our federal PLUS loan program, we are allowing parents and graduate students to borrow up to the full cost of education with no limits. As has been widely reported the level of student loan debt in the U.S. now exceeds credit card debt. Our students will soon be wallowing in more than a trillion dollars in student loan debt.
Meanwhile everyone knows what is happening to the cost of higher education.
Again, I never thought I would find myself saying this, but I think it is time to take steps to discourage borrowing for higher education. We should slowly over a period of time substantially reduce the government student loan programs. My reason for this is primarily to protect students from untenable debt burden. I realize there will be cases where students with reduced recourse to government loans would have to choose lower-cost alternatives—community colleges instead of expensive for profit schools or public colleges and universities over high cost private institutions, but I’m not sure this is a bad thing. We have to begin to address the issue of what the best financial fit is for students. We simply can’t afford to have a system in which the federal government encourages so much student debt.
I also think a reduction in federal student loans would help to address the issue of out-of-control college costs and the growing national debt.
There has long been concern that one reason colleges can increase their prices at such a rapid rate is that students and their parents can borrow at favorable terms from the federal loan programs. In the case of PLUS, the government offers a program which will lend at good rates with minimal credit requirements for the entire cost of education, no matter what the colleges charge. It’s a deal which the car companies or any other industry reliant on consumer credit financing would envy. A reduction in federal loan availability might just encourage higher education to think a bit more seriously about reducing the rate of increase in its costs or developing more cost-efficient ways to deliver high-quality education.
Finally, I don’t think we can ignore the cost to the government of this explosive growth in the amount of federal student loans on the federal balance sheet. Currently the federal number-crunchers tell us that these loan programs will not be all that costly. In fact, they say that because the cost of money to the government is much lower that the interest rates charged, the government actually makes money on student loans (one might wonder why this should be). But cost is dependent not just on the spread between cost of money and interest charged, but on among other things, future default rates. The government projects that future default rates will be moderate enough to ensure profit. But our experience with government cost estimates doesn’t give much comfort. Think the Big Dig or any of numerous Defense Department weapons systems.
Let’s save our students from crushing debt, help our colleges control costs, and save Uncle Sam a buck or two. It’s time to start reducing the size of the huge federal student loan system.
Thomas D. Parker is senior associate at the Washington, D.C.- based Institute for Higher Education Policy (IHEP), director of IHEP’s Global Center on Private Financing of Higher Education, and a consultant to the First Marblehead Corporation.
Tags: Federal Direct Student Loan Program (FDLP), FFELP, First Marblehead Corporation, Institute for Higher Education Policy (IHEP), student loans, Thomas D. Parker