DOCUMENT RESUME El 008 037 Zymelman, Manuel
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El 008 037
AUTHOR TITLE
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PUB DATE NOTE
Zymelman, Manuel Financing and Efficiency in Education: Reference for Administration and Policymaking. Agency for International Development (Dept. of State), Washington, D.C. 73
322p.
EDRS PRICE DESCRIPTORS
MF-$0.83 HC-$16.73 Plus Postage Cost Effectiveness; Delivery Systems; *Educational Finance; *Efficiency; Elementary Secondary Education; Expenditures; *Financial Policy; Financial Support; Higher Education; *Models; National Programs; *Resource Allocations
ABSTRACT This book examines the advantages and disadvantages
cf various methods of financing education and discusses the basic issues related to increasing efficiency in education. Section 1 offers a short history of educational finance and discusses many of the traditional approaches to financing education. Section 2 presents methods for distributing funds to different levels of formal education and to various types of nonformal education. Section 3 describes different arrangements for raising educational funds and controlling their use. Section 4 examines different methods for forecasting educational resources and describes the Index of Educational Funding, a model for measuring national effort in educational spending. Section 5 discusses concepts of efficiency in education and develops a general approach for improving efficiency through intervention in the educational system. Section 6 deals with ways of increasing overall efficiency and decision-making in national educational systems. Section 7 presents ways of increasing educational effiCiency, with emphasis on educational contracting. It also describes the Index of Educational Expenditures, a model for comparing different nations' educational spending. (AuthorM)
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Financing and Efficiency
in
Education
Reference for Administration and Policymaking
N
Cv:
0
MANUEL ZYMELMAN
HARVARD UNIVERSITY
2
This book was produced as part of a project sponsored and funded under a contract with theAgency for International Development. The views expressed herein are, however, those of the author and are not necessarily those of the Agency. All rights reserved.
Composed and printed at The Nimrod Press, Boston, 1973
3
To Nancy
4
ACKNOWLEDGMENT
A work covering so many varied topics in the financing and efficiency of education mu,st necessarily rely on the assistance of many people. Foremost, I acknowledge with thanks the help of my three research assistants: Dr. Jose Dominguez, who developed the idea of a Student Loan Development Bank; Mrs. Elaine Gould; and Mrs. Adele Neuringer. They collaborated
tiringly in all phases of this project.
* I wish to thank Dr. Robert McMeeckin for his assistance in the formution of the chapters on planning, data for decision-making, and admin,tration; Dr. John Simmons for his assistance in the formulation of-the hapter on the economic valuation of educational outputs; Professor Donald M. Levine for his assistance in the formulation of the chapter on PPBS; Professor John Anderson for his assistance in the formulation of the chapter on self-help in education; and Mrs. Jeanne Henn for her assistance in the formulation of the chapter on distribution of funds.
My thanks to Professors John Anderson, Roy Bahl, Charles Benson, Curley Bowen, Andre Daniere, Russell Davis, Werner Hirsh, Donald M. Levine, Selma Mushkin, Richard Speagle, and John Vaizey for specially preparing research papers that deal with various topics related to this book.
I am grateful to the members of the Task Force in Educational Finance and Measurement of the Agency for International Development, and to all
the participants of the International Conferences on the Financing of Education held in Cartagena and Malta in 1973 for their many basic and relevant comments on early drafts of this book.
Lastly, I am especially grateful to Mrs. Helene Tuchman for her efficiency in compiling the index; to Dr. Martin Robbins who worked closely with me in editing the manuscript and providing invaluable criticism; and to Miss Dolores Tirnbas for her indispensable critical editing of the final manuscript in close collaboration with me and for supervising the book through all stages of publication.
Although help, information, and advice were received from these and many other sources, responsibility for this book rests solely with the author.
Manuel Zymelman Cambridge June, 1973
TABLE OF CONTENTS
INTRODUCTION
1
Part I: THE SOURCES AND FINANCING OF EDUCATION
Chapter
Section 1
I
EDUCATIONAL FINANCE IN HISTORICAL PERSPECTIVE
7
t..
Delineation of Educational Needs
7
Nature of Sources of Support
8
Methods of Fund Acquisition
9
Methods of Fund Allocation
14
Summary
17
II PUBLIC AND PRIVATE EDUCATION: THE PHILOSOPHIES
BEHIND THE ISSUES
19
Justification for Government Intervention
19
Financing of and Provision for Education
20
The Philosophies Behind the Issues
21
Conclusion
25
III REVIEW OF TAXES COMMONLY USED TO FINANCE
EDUCATION
27
Criteria for Evaluating Taxes in General as Sources of
Finance for Education
27
Earmarked Taxes for Education
29
Analysis of Property and Sales Taxes
29
Summary
48
Section 2
IV ELEMENTARY AND SECONDARY EDUCATION: PUBLIC
AND PRIVATE FUNDING
50
Public Funding
50
Private Funding
79
V GOVERNMENT FINANCING OF HIGHER EDUCATION
82
Financing Patterns of Higher Education
82
Summary
89
VI NATIONAL STUDENT LOAN INSTITUTIONS
90
National Student Loan Institutions as Instruments of Policy 90
Effects of Student Loans on the Individual Borrower
91
Chapter
Possible Effects of Student Loans on Higher Education
92
Effects of Student Loans on Society
93
Operations of a National. Student Loan Institution
93
A Special Type of SLI: The Student Loan Development
Bank (SLDB)
103
Conclusions
108
VII THE FINANCING OF OCCUPATIONAL TRAINING
110
Difficulties in Categorizing and Comparing Types of
Vocational Training
110
Alternative Types of Training
111
Trainee Differences and Other Variables
112
Financing of Vocational Education
113
Special National Training Institutions and Their Financing 120
Summary
123
VIII RECURRENT EDUCATION
127
A Recurrent Education System
127
Implementing Recurrent Education
129
Financing Recurrent Education
130
Feasibility of Recurrent Education for Developing Countries 131
IX FINANCING EDUCATIONAL BROADCASTING
133
Criteria and Forms of Financing
133
Summary
138
Section 3
X SELF-HELP AS A METHOD OF FINANCING EDUCATION 140
The Philosophical and Economic Perspectives of Self-Help 140
The Cooperative As a Self-Help Institution in
Educational Financing
144
Summary
148
XI THE VOUCHER SYSTEM
149
Objectives of the Voucher System
149
Different Voucher System Plans
150
Additional Variations of Voucher System Models
154
The Voucher System and Developing Countries
154
XII EXTERNAL AID TO EDUCATION
156
The Donor-Recipient Relationship
156
The Content of External Aid
157
vi
7
Chapter
Distribution of Aid Within the Educational Sector
158
Rationale for Accepting External Aid to Education
159
Issues Faced by Donors of Aid to Education
160
Summary
161
Section 4
XIII FORECASTING RESOURCES FOR EDUCATION
162
Sources of Resources for Education .
162
Forecasting Resources for. Education Supplied by
Government
163
Forecasting Education's Share in Government Expenditures 164
Forecasting Contributions by the Private Sector
167
Summary
168
XIV AN INDEX FOR MEASURING EDUCATIONAL FUNDING 169
The Index of Educational Funding
170
Notes to the Index of Educational Funding
172
Meaning and Uses of the Index of Educational Funding
174
Part 11: PROBLEMS OF EFFICIENCY AND FINANCE
Section 5
XV EFFICIENCY IN EDUCATION
179
Efficiency of a Transformation Process
179
Increasing Efficiency
187
XVI AN EVALUATION OF THE OUTPUTS OF EDUCATION
203
Educational Outputs Related to Stated Goals
203
The By-Products of Education
209
Method of Evaluating Educational Outputs
210
Summary
212
XVII THE ECONOMIC VALUE OF EDUCATIONAL OUTPUTS
213
The Rate of Return Approach
213
The Manpower Approach
221
Correlation Analysis
224
The Residual Approach
227
Regression Analysis Approach
229
Production Function Analysis
230
Summary
232
vii
8
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