Reflections on Pell Championing Social Justice through 40 Years of Educational Opportunity

THE PELL INSTITUTE June 2013

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ii REFLECTIONS ON PELL June 2013 THE PELL INSTITUTE For the Study of Opportunity in Higher Education About

The Pell Institute, sponsored by the Council for Opportunity in Education, conducts and disseminates research and policy analysis to encourage policymakers, educators, and the public to improve educational opportunities and outcomes of low-income, first-generation students and students with disabilities. The Pell Institute is the first research institute to specifically examine the issues affecting educational opportunity for this growing population.

Aboutiii 06 ACKNOWLEDGEMENTS

07 PREFACE: From Clay Pell

08 HIGHLIGHTS OF A LIFETIME: Claiborne Pell 10 INTRODUCTION: From Arnold Mitchem

12 WHO RECEIVES PELL GRANTS: A Snapshot PERSONAL FACTS & REFLECTIONS

16 THE BEOG AND ME By Karen Boran, Ed. D.

20 REFLECTIONS FROM A “PELLUMNA” ON THE PROFOUND VALUE OF THE PELL GRANT By Vickie Choitz

22 STUDENT ACTIVISM IN PROMOTING ECONOMIC DIVERSITY: The Continued Relevance of Pell By Spencer Eldred

26 THE PELL GRANT: A Signal of Value By Christopher M. Mullin, Ph.D.

28 GIVE ‘EM HELL...GIVE ‘EM PELL FOR ANOTHER 40 YEARS! By Deborah Northcross

30 TARGETING STUDENTS WITH FINANCIAL NEED: The Pell Grants’ Greatest Strength By Laura W. Perna iv REFLECTIONS ON PELL June 2013 Table of Contents HISTORY, FACTS, & POLICY RECOMMENDATIONS PELL AWARD RECIPIENTS

36 Pell Grant 60 THE PELL GRANT PROGRAM: 82 REFLECTIONS ON THE 40 99 LOIS DICKSON RICE Legislation Timeline More than Just a Number YEARS OF THE PELL GRANT By Justin Draeger PROGRAM 100 MAURA CASEY By Freeman A. Hrabowski, III 38 Trends in Receipt of Pell 101 JAMIE MERISOTIS Grants and Percentage of 64 THE ROLE OF PELL GRANTS Costs Covered IN AN ERA OF RISING 86 TO RESTORE PELL GRANTS 102 VY A. TRUONG TUITION PRICES IN PRISONS IS TO RESTORE By Donald E. Heller MY FATHER’S VISION OF 103 JASMINE JOHNSON 40 THE EARLY YEARS OF EDUCATION OPPORTUNITIES THE PELL GRANT FOR ALL By John Lee 68 PELL AND THE MERITS OF By Dallas Pell NEED-BASED STUDENT AID By Jacob Fraire 44 PELL GRANTS: 88 PELL GRANTS AS BUILDING Higher Education’s Brown BLOCKS OF AMERICA’S v. Board of Education 72 DREAMS DO COME TRUE OPPORTUNITY AND WORLD By Richard D. Kahlenberg By Martha Kanter COMPETITIVENESS By Layton Olson

50 BIRTH OF THE PELL GRANT: 78 THE FEDERAL PELL GRANT The Community College Role PROGRAM: 92 SENATOR PELL AND SENATOR By Frank Mensel Alternative Futures FULBRIGHT: By Tom Mortenson Personal Connections By Heather Eggins 56 PELL GRANTS: One Piece of a Compelling 80 WHAT TRULY IS Social Justice Agenda UNSUSTAINABLE 94 ACCESS WITHOUT SUPPORT IS By Sandy Baum & By Kati Haycock NOT OPPORTUNITY Michael McPherson By Vincent Tinto

Table of Contents v acknowledgements

e wish to extend a hearty thank you to Pell’s daughter, and the involvement and preface everyone who joined in to celebrate and to this collection from Clay Pell, his grandson. Both W commemorate the 40th anniversary Dallas and Clay carry their father and grandfather’s of the Pell Grants through this project. There are torch for equal access to higher education for all. We many, many people who inspired, encouraged, and are proud and grateful to be able to champion Senator lent their passion, commitment, and expertise to the Pell’s vision of social justice through the Pell Grants production of this collection of thoughtful reflections with Dallas and Clay in this project. about the Pell Grants. The energy and time that None of the efforts would have been realized in each writer devoted to expressing the powerful the production of this report if it were not for the contribution the Pell Grants have made in the lives generous funding from The Lumina Foundation. We of countless students over the last four decades as thank Lumina for valuing and providing funding well as their deep concerns about the future of the support for advocacy and research projects that program and constructive recommendations for ways inform practitioners and policymakers. to sustain it, has in the most practical and earnest way advanced the fighting for support for equal access Finally, we acknowledge that the responsibility for to opportunities in higher education for all. We are, any errors or omissions discovered in the production as well as the many thousands of students to come, and presentation of this collection lies solely with the indebted to you for raising your voices and writing Pell Institute. However, the content of each reflection your words for all of us to study and act upon. essay are the opinions of the individual authors and do not necessarily represent the opinion or stance of A special expression of gratitude is extended to the Pell Institute or its governing organization. Senator Claiborne Pell’s family during this 40th anniversary. We could not be more appreciative of the contribution of reflections from Dallas Pell, Senator

06 REFLECTIONS ON PELL June 2013 preface

his volume celebrates a remarkable mile- than ever before: opening these doors of knowledge CLAY PELL stone in recent American history. For 40 and opportunity to all. years, our country has come together around GRANDSON OF SENATOR PELL T You will find in this volume a wide variety of the simple proposition that every American “with the Washington, D.C. reflections, which both celebrate the 60 million moxie and the drive” should be able to go to college. individuals who have gone to college on a Pell Grant, Since 1972, more than 60 million students have and encourage us to keep our commitment to the pursued higher education with a Pell Grant, including principles of access and opportunity in the future. 9.8 million students today and much of America’s People often approach me to say how much their current college-educated workforce. Pell Grant meant to them. It’s not just that the money More than ever, Pell Grant recipients are our future made their educations possible, they say, but that and represent our changing face as a nation. More they feel proud of, and grateful to, a country that than 50 percent of African-American and 40 percent invested in them. of Latino college students count on Pell Grants. For My family and I would like to thank you and all African-Americans, a bachelor’s degree erases any those who have made the Pell Grants possible for difference in economic mobility compared with the past forty years. We are grateful to the Pell their White peers. For the average American, a Institute, the Council for Opportunity in Education, bachelor’s degree will add about $1 million to his and the Lumina Foundation for their commitment or her lifetime earnings. to celebrating this milestone, and we look forward And that is why this volume is so timely. As our to working with all Americans to ensure access to generation shapes the American Dream in the coming knowledge and opportunity in the years ahead. years, one commitment will become more essential

07 SERVICE Serves as vice president of Highlightsthe International Rescue of Committee EDUCATION Graduates from Princeton with honors in History and Public and International Affairs, ELECTION enlists in the Cost Gaurd Elected Senator of Later retired from the Rhode Island Reserve in 1978

BIRTH

Claiborne deBorda Pell EDUCATION CONT’D GRANT SPONSOR born in Manhattan on Sponsors the preparation November 22nd Obtains a master’s degree in International Relations of a large two-volume at Columbia University statistical report that and works in the State became thea basis of the Lifetime Department until 1952 bill creating the Basic Educational Opportunity Grant (BEOG) 1918 1956 1960 1963 1940 1946 SENATOR Highlights of CLAIBORNE PELL AWARD 1918-2009 President Clinton presents Pell with the Presidential Citizens Medal

PASSING January 1st Pell loses his battle with Parkinson’s disease in Newport, RI

RETIREMENT Retires from the Senate after serving for 36 continuous years (longer that any other Senator in a Lifetimethe state) 1994 1996 2009

09 introduction

oo much is at stake for us to not stop and earn less than $30,000 per year. We owe a great DR. ARNOLD L. critically reflect on the Pell Grants and debt to Senator Pell, and we must acknowledge his MITCHEM T what “Championing Social Justice through leadership and his indelible imprint on the education PRESIDENT 40 Years of Educational Opportunity” really means. of American citizens.

Council for the This collection of essays documents the significant The Pell Institute for the Study of Opportunity in Opportunity in Education achievement of the Pell Grants as well as how the Higher Education, aptly named for the Senator, is program is at risk. the research arm of the Council for Opportunity in Forty years of commitment by the federal Education. To commemorate the 40th anniversary of government to educational access for all students, the Pell Grant program, The Pell Institute launched regardless of income, is a landmark that most the PG40 Impact Initiative to explore the varying certainly warrants celebration. Commemorating dimensions of the Pell Grant Program and its effects Senator Claiborne Pell, the extraordinary visionary over the last 40 years. For the first convening of the behind the unprecedented demonstration of PG40 Impact Intiative, in June 2012, The Pell Institute support for equal opportunity to higher education, hosted rigorous presentations and discussions from is a privilege and honor of the highest order. He financial aid experts during the Student Financial was an exceptional, compassionate congressional Aid Research Network (SFARN) Conference. Profiling civil servant whose legislative actions were driven and acknowledging current Pell Grant recipients by doing what is morally and socially just, and and alumni during the Council for Opportunity in consequently he substantially transformed the Education’s (COE) Annual Conference in September lives of poor people all across this nation. Today, 2012 was also a major feature of the PG40 Impact nearly 75% of all Pell Grant funds are distributed Initiative. The highlight of the PG40 Impact Initiative to undergraduate students from families who is this compendium of reflections, which includes

10 REFLECTIONS ON PELL June 2013 both statistical information and personal testimony investment and the way in which the creation of this to provide policymakers and college and university program represents a recognition of our new global administrators with a comprehensive view of the reality. The writers also grapple with the erosion Pell Grant program and in turn to make more of Pell Grants’ purchasing power, the implications informed decisions about sustaining, legislating and of viewing students as numbers, and the role of administering the Pell Grant. student activism in sustaining the relevance of the Pell Grant. They thoughfully consider what it means The 20 thought-provoking essays in this collection to protect the value and integrity of Pell Grants, offer were written by college presidents, professors, and ways to make Pell Grants more efficient, and call on deans, a high school principal, education research the federal government to adequately fund support scholars, foundation heads, current and former U.S. programs for Pell Grant students and more. Department of Education leaders, a college access program director, and a student activist, among These reflections are creative, critical, and forward others. Many of the contributors are former Pell thinking. They should cause you to pause and Grant recipients who provide intimate insights consider how we can ensure that we will be about the concrete ways the Pell Grants changed commemorating the Pell Grants for years to come. their lives and those of others. The reflections are For this to happen, no future legislative, regulatory, divided into two thematic sections as either being or institutional policies about the Pell Grant should primarily personal or historical or policy-oriented. be made without the consideration of the range However, throughout the essays, the authors share of perspectives captured by these passionate and critical insights ranging from how the Pell Grants are constructive reflections. a “gift of hope,” why the Pell is the “epitome of good policy,” to defining the Pell Grants’ tangible return on

11 GENDER AGE

19 OR YOUNGER who recieves 37.8% 62.2% 53.7% pell grants 36.3% 20-23 17.3% A Snapshot 24-29 6.3% 27.6% 30 OR OLDER DEPENDENCY 24.7% 6.8%

FIRST INSTITUTION TYPE ATTENDED

73.9% 26.1% 35.1% DEPENDENT INDEPENDENT 2-YEAR PUBLIC

22.7% 4-YEAR PUBLIC

5.7% PARENTS’ HIGHEST EDUCATION 13.1% 4-YEAR PRIVATE 2.8% (not-for-profit) 1.6% 0.9% 0.4% 53.7% 3.8% HIGH SCHOOL DIPLOMA VOCATIONAL TRAINING 29.2% (or less) 4-YEAR PRIVATE (for-profit)

15.9% 7.1% SOME COLLEGE ASSOCIATE’S DEGREE NATIVE AMERICAN OTHER MORE THAN ASIAN HISPANIC BLACK/AFRICAN WHITE (less than 2 years) HAWAIIAN/ INDIAN ONE RACE /LATINO AMERICAN OTHER PACIFIC OR ALASKAN ISLANDER NATIVE 12.5% 7.1% PELL RECIPIENTS BY RACE/ETHNICITY BACHELOR’S DEGREE GRADUATE DEGREE { }

12 REFLECTIONS ON PELL June 2013 GENDER AGE

19 OR YOUNGER 37.8% 62.2% 53.7% 36.3% 20-23 17.3%

24-29 6.3% 27.6% 30 OR OLDER DEPENDENCY 24.7% 6.8%

FIRST INSTITUTION TYPE ATTENDED

73.9% 26.1% 35.1% DEPENDENT INDEPENDENT 2-YEAR PUBLIC

22.7% 4-YEAR PUBLIC

5.7% PARENTS’ HIGHEST EDUCATION 13.1% 4-YEAR PRIVATE 2.8% (not-for-profit) 1.6% 0.9% 0.4% 53.7% 3.8% HIGH SCHOOL DIPLOMA VOCATIONAL TRAINING 29.2% (or less) 4-YEAR PRIVATE (for-profit)

15.9% 7.1% SOME COLLEGE ASSOCIATE’S DEGREE NATIVE AMERICAN OTHER MORE THAN ASIAN HISPANIC BLACK/AFRICAN WHITE (less than 2 years) HAWAIIAN/ INDIAN ONE RACE /LATINO AMERICAN OTHER PACIFIC OR ALASKAN SOURCE: U.S. Department of Education, National Center ISLANDER NATIVE for Education Statistics, 2007-08 National Postsecondary 12.5% 7.1% Student Aid Study (NPSAS:08). PELL RECIPIENTS BY RACE/ETHNICITY BACHELOR’S DEGREE GRADUATE DEGREE { }

13 14 REFLECTIONS ON PELL June 2013 Personal Facts Reflections

15 16 REFLECTIONS ON PELL June 2013 The BEOG and Me

My name is Karen Boran, Ed.D., and Personal Facts & Reflections my father was a farm worker.

n the late 50s and early 60s, my family moved from farm to farm—that would be my father and I mother, my four older brothers, three younger brothers, two older sisters, and me. It was a great life: we ran those woods as tribes, constructed complicated forts in haymows, and held board game marathons every time it rained.

Books were stacked like columns in front of my parents’ mismatched book-shelves, on tables, and along bed-stands. They read, we read, and then we talked. We talked and laughed and told more stories. I grew up literate, I grew up in a great jumble of people who spent a lot of time laughing, and never throughout the first ten years of my life did I know I was poor.

I remember the day my father found a job in a factory and suddenly we had insurance. We lost,

…not only was education the way out, education KAREN BORAN, was the only possible way out for me. Ed.D.

however, our free milk, beef, vegetables, housing, PRINCIPAL and gas. Although we were now blue-collar, with John Hancock College Preparatory High School benefits, we were now really poor. My mom assures

17 me we were before, but when I talk to my brothers and sisters, none of us remember. Once we moved to Lake Geneva, however, I remember poor. I remember powdered milk, government cheese, and the foul monstrosity called government peanut butter. My mom cut my hair and I wore hand-me-downs.

That’s when it really dawned on me—during those very tough and formative middle school years—that not only was education the way out, education was the only possible way out for me. I wasn’t tall and graceful, my only vocal talent was volume, and I had bad hair. My older siblings chose the military (it was the Vietnam War). That didn’t seem like the best path for me; I liked to ask too many questions. I knew I had to go on to college; I also knew my parents weren’t going to be able to help.

Skip forward to 1975, my senior year at Lake Geneva Badger High School, where I was 10th in my class. My counselor, who I never remembered before that moment, popped up before me in the hallway and said, “Karen, you’re smart. Want to go to college?” He helped me understand that there was free money to go to school for poor kids like me—the Basic Educational Opportunity Grant (then the BEOGs, now the Pell Grants), which made possible my excellent education at the University of Wisconsin-Madison. It was 1980, and I now had the ticket to my future—a degree from a good university. I completed college with only $3,600 owed, a sum I paid back over the next ten years, at a rate of $33 per month: a price tag I could manage.

I was so very, very lucky. I went to excellent neighborhood schools throughout my education. My

18 REFLECTIONS ON PELL June 2013 Personal Facts & Reflections 19 their families not just now, but for years to come. to years but for their families not just now, in family, my future, and the future of my I owe the of Pell and the men and women Senator part, to me but know didn’t even who Congress States United in me anyway. invested Thank you. Really. Thank you. Nothing could be more important to the future of this the future of to more important could be Nothing men in the bright young the investment country than in our neighborhood public schools. and women my hope possible for make today of The Pell Grants college of the barriers surmount as they students completing into cajoling their parents from going, a won they’ve explaining that to forms, FASFA be and they’ll university an excellent scholarship to first time in any the school—for for home leaving the family. of generation across parents like Hancock students, of The parents poured their hearts and souls into have the country, do the right spirits to nurturing these caring young on the prize, an eye keep hard, to work thing—to and happy, a full live and once out in the world, just like out now, is a way Education life. productive ago. me almost 40 years for it was me. My done for have Pell Grants what That’s I needed to the ticket degree was undergraduate to experienced, and ready educated, life my live pour the same kind of to continue lead. Pell Grants and recipients millions of of blessings on the lives futures to access postsecondary and education futures to be. to meant were they become who grants (such as the Pell) given to our students with our students to Pell) given as the (such grants won scholarship funding: in 2008, Hancock seniors scholarships, and in 2012, $5.6 of $5,000 worth only this for base a rock-solid serve as million. Pell Grants in high schools students millions of occur for to work are the Pell Grants the country. mine across like promising all these kids with such allows that lever assistant principal for two years. years. two principal for assistant high school onHancock is a small, neighborhood and 94% side with a 93% Latino southwest Chicago’s This is a school with college body. student low-income in the neighborhood, like in its name, and the people their want attended, the high school I of the parents and career. in college succeed children to ever-increasing at college to are going Our students the men and of work the good of because rates school, and in the Hancock community, women Hancock’s principal has the years, Over classrooms. precision: with laser-like our school focus organized the intellectual have men and women these young and career college prepared for be fully capital to ensure do is aligned to we and everything success, increased Our college-going have success. that rates we 51.5% in 2011 (the last year 35.9% in 2009 to from available). data have men and women are these bright young And how Our fine college? for and their families paying and state the federal counseling staff leverages School Curriculum (English, math, and science) for and science) for (English, math, School Curriculum Hancock John principal of the I’m now and now CPS, I’d been the School, where High Preparatory College content area reading in the lowest-performing high area reading in the lowest-performing content I became a reading specialist. I schools in Chicago. a High School Area in reading. I was a doctorate have High School Reading of the Manager Coach, Reading High of Public Schools, the Director Chicago for means the BEOG made it possible. I had the gift of gift of means the BEOG made it possible. I had the me, and I know didn’t even someone who hope from it. of advantage took I have investment? the return on that was And what teach to with teachers career working my spent take me five years. It didn’t mean it wasn’t hard. It years. It didn’t mean it me five take convinced other powerful people who didn’t know didn’t know people who powerful other convinced other poor kids in me (and millions of invest me to college. to going I was and suddenly years), the over jobs several didn’t mean I didn’t have That didn’t mean it didn’t in school. That simultaneously had thought that I was worth this life-changing worth I was gift. had thought that I learned not mess this up.Later, I knew I had better Claiborne Senator was the someone, somewhere that on the East Coast, a small state Pell, a rich man from dreams. or my family, my me, didn’t know who me, and kids like of potential in the But he believed family was close—still is close. My parents found a found is close. My parents close—still was family I Did everything. be at or the other to one for way With 10 kids? Most importantly, everything? mention future was my of in the promise invest to the money no me. Me: a smart, poor kid. There were there for someone somewhere, that except strings attached, I had the gift of hope from someone who didn’t who didn’t someone hope from I had the gift of it. of advantage me and I took know even REFLECTIONS FROM A“PELLUMNA” ON ver the past four decades, Pell Grants have from my parents, which I had been since I was 16 helped more than 60 million low- and years old. However, part way through my education, The Profound O modest-income students access and afford Congress decided to change the definition of an college and other postsecondary education. Twenty independent student. Even though I was financially Value of the years ago, I was one of those students. For me and independent from my parents in every way—even millions of other Pell Grant recipients, the Pell Grant’s estranged from my father—Congress decided that Pell Grant power goes far deeper than financial aid. It validates I and other students like me were, in fact, students and reassures first-generation students pioneering “dependent” on our parents. Congress assumed that into the unfamiliar terrain of higher education that I could simply apply as a dependent student with my Anyone they are not alone, that they can achieve a credential, parents, but that was not an option, which meant I that they are worthy of a college education, and would lose my Pell Grant. It was devastating, and I familiar with that their nation believes in their ambitions. The thought that I might have to drop out because I was the Pell Grant Pell Grant helps to fund postsecondary education, already maxed out on loans and working as much as is aware that but it buys much more—it gives low- and modest- possible without endangering my grades. Luckily, I income students hope that they can succeed in higher was able to appeal and my grant was reinstated, but I it carries education and excel beyond the previous generation. felt a little betrayed by Congress, which clearly did not financial value, understand my economic reality. I was the first in my family to go to college. Neither of but few know my parents had the experience to advise me on how During this ordeal, I kept wondering if what Congress its deeper and to choose a college, apply for financial aid, or select a had done was really what the American taxpayers more meaningful major. They certainly did not have the ability to help would have wanted. I was a kid who played by the worth. me pay for college since they were struggling with money problems of their own. I was on my own, and I felt a little betrayed by Congress, which it felt like traveling alone in a foreign land without clearly did not understand my knowing the language or having access to a bank or economic reality. VICKIE CHOITZ an embassy. But when I saw the Pell Grant on my financial aid letter, I realized that I was not alone rules. Statistically, I should have been a teen mom SENIOR POLICY ANALYST after all. The federal government—the nation—was or a high school dropout given the dysfunction Center for Law and Social Policy (CLASP) on my side and willing to invest in me as I tackled my family had been through. However, I had good economic and academic challenges and worked hard grades, was on a state championship high school to earn a bachelor’s degree. debate team, and had worked part-time jobs to support myself through high school and college. But the entire worth of the Pell Grant was not totally Surely my fellow Americans would not have thought evident until I almost lost it. I was what is known as an it right that any student would deserve such an “independent student”—I was financially independent

20 REFLECTIONS ON PELL June 2013 Personal Facts & Reflections 21 4.8 percent, compared with college graduates in graduates with college compared 4.8 percent, 19.4 grew by real wages whose sector the private less than pay all jobs in America Half of percent. This (based on full-time, full-year). $34,000 per year people who low-income of pool large a rather creates a pursue as they Pell Grants qualify for deservedly that, show data The latest postsecondary education. the low- is assisting exactly indeed, the Pell Grant in 2010–2011, 74 percent income people in this range: $30,000 of incomes had family recipients Grant Pell of or less. lower with more students line is that The bottom real incomes are seeking postsecondary to education and other Pell Grants their families. Without support than rise as sink rather aid, their ships will student recovers. slowly the economy 60 million Pell among over be counted to I am proud join would they that alumni—or “Pellumni.” I know in its 40th program Grant the Pell me in this wish for low- of future generations it be there for That year: there for just as it was students, and modest-income Pell. Birthday, us. Happy size of the pool of students eligible for Pell Grants. eligible for students the pool of size of school- high for 2010, real wages 1989 to From just by grew sector in the private workers educated thought it right that any student would would student any that it right thought deserve such an undercutting–especially which is a concrete Grant, with the Pell our demonstrate we as a country that way achieve to opportunity equal support for the American Dream. Surely my fellow Americans would not have have not would Americans fellow my Surely this far? Will it completely derail their education and derail their education it completely this far? Will in their poverty of end the cycle their best chance to the toward journey end their Will it abruptly family? than the living earning a better American Dream of security? economic and enjoying generation previous has become a A postsecondary education This the middle class. entering for prerequisite are seeing more nontraditional colleges is why minority, including more low-income, students, parents and student working, older, first-generation, data seeking postsecondary The latest credentials. are age all undergraduates of 36 percent that show their from are independent 47 percent 25 or older, are low- 40 percent are minority, 36 percent parents, full-time, and 23 are employed income, 32 percent are parents. percent widen in this inequality As income and wealth and modest- rise, low- prices country and college more low-income become relatively income students their better-off peers. This increases the to compared support. Will a deep cut or elimination of the Pell of cut or elimination Will a deep support. of personal in the barrage blow be the final Grant getto overcome have they challenges and financial

I was on my own, and it felt like traveling like traveling and it felt own, on my was I the knowing without land in a foreign alone bank or a access to having or language an embassy. Having been a student who faced such cuts, I am faced such who been a student Having on the low- could have they of the effects terrified who students first-generation income and often financial and motivational for on Pell Grants rely indicate a leveling of program expenditures over the expenditures over program of leveling a indicate and others Congress next decade, these members of the new equilibrium accept cuts refuse to advocating and cut grants to and are content in the program and working, Nontraditional, eligibility. student are the most in danger. students independent more students in need. However, as the program as the program in need. However, more students postsecondary access improving has done its job of inside and outside of many and affordability, and are figure budget see the larger only Congress to the program back the size of roll to determined pre-recessionaryprojections Although official levels. years, the Pell Grant program has grown to assist to has grown program the Pell Grant years, the recent due to partly students, more 50 percent since recession—the deepest economic downturn bipartisan due to partly Depression—and the Great assist the program help to Congress by changes is a concrete way that we as a country demonstrate country demonstrate as a we that way is a concrete the achieve to equal opportunity for our support American Dream. this repeat is poised to Congress that I fear Today, the last few but on a grander scale. Over devastation, undercutting—especially with the Pell Grant, which which with the Pell Grant, undercutting—especially STUDENT ACTIVISM IN PROMOTING ECONOMIC DIVERSITY: The Continued Relevance of Pell

SPENCER ELDRED

DIRECTOR OF POLICY & PROGRAM DEVELOPMENT

United for Undergraduate Socio- Economic Diversity (U/FUSED)

22 REFLECTIONS ON PELL June 2013 Personal Facts & Reflections 23 Grants bring Americans together and allow merit and allow bring Americans together Grants socioeconomic background, not solely and resolve, achievement. educational in determining roles in economic diversity promoted have Pell Grants schools, and parents, Students, higher education. noticed and embraced this have communities the American outlook Pell Grants, Thanks to change. a college a belief that incorporates on education of my parents, who only attended college because of of because college attended only who parents, my of many change educations Pell Grant the Pell Grant. receive who recipients the number of than more lives the form recipients Grant Pell Former the grants. require a that professions the many backbone of the ago, 40 years degree. Without Pell Grants college and declined stagnated have would economy national long ago. the backwaters into an parents my gave Pell Grants ago, years Forty has grown education While the cost of education. costs, college cover ability to than the grant’s faster college of be the lifeline to continues the Pell Grant more provide Pell Grants students. many access for allow in need. Pell Grants students to than a subsidy those class and educate look beyond schools to For middle-from backgrounds. and lower-income seems personal wealth in which in an age recipients, these validate Pell Grants matters, be all that to students, their fellow For places on campus. students’ the are not from who students allow Pell Grants work, study, to socioeconomic strata privileged Pell the classroom. as equals in and out of and play The Pell Grant changed America for the better. It the better. America for changed The Pell Grant a reality. into education a college dream of turned the those similar to stories can offer Americans Many willing to put in the effort. Higher education in the effort. Higher put willing to roads promising the most one of provides which American Dream, fulfilling the to the fight. worth is believes American society Thanks to Pell Grants, the American outlook the Grants, Pell to Thanks a that a belief incorporates on education anyone to belong should education college financial support. With a Pell Grant and some odd Pell Grant support. With a financial received parents ends meet, both my make jobs to the middle class. to degrees and their tickets college work hard deserved the chance to reach their full reach the chance to deserved hard work education. a college through potential accessible became College In 1972, America changed. with the arrival all backgrounds of Americans for In 1972, the become the Pell Grant. would what of high school, the Higher graduated father my year the American expanded Amendments Education other young many realized, like Dream. My parents despite college could attend they that students, at home. This new support financial the lack of opportunity. the idea of revolutionized development He become a science teacher. decided to My father classroom in a college set foot have never would the mother, my The next year, without the Pell Grant. both lacked whose parents children, five oldest of the time, decided she at a high school education without her parents’ even as well, college to could go people that colleges acted as a cradle for both as a cradle for acted colleges people that spirit. ideals and entrepreneurial our democratic and learn those willing to that believed Americans

hey turned the college education into a goal a goal into education the college turned hey no longer achieve, aspire to could anyone When wealth. those born into the outpost of

Forty years ago, Pell Grants Pell Grants ago, years Forty America. transformed of a great turning point in education, one that had one that in education, turning point a great of began in the 1940s Changes earlier. years started colleges. into veterans of and 1950s with the influx in the 1960s and the Higher activism Student the American a signal to sent 1965 of Act Education However much they wanted to go to college, they they college, to go to wanted they much However could it. Their parents afford could never knew they lack of My parents’ school. send them to to not afford loans. financial assets barred them from on the edge lived fortune, in their good My parents, college was only a dream. Their parents had not a dream. Their parents only was college go never would thought they They college. attended could hope The best means they as well. college to survive to rather, the American Dream, or, realize to high school and take graduate to was on their own, origins. up a trade fitting their social and economic my parents were growing up in Southern California, California, up in Southern growing were parents my T education should belong to anyone willing to put in but also students’ ability to understand the realities Student activism to preserve economic diversity takes the effort. Higher education provides one of the most families of all backgrounds face. Students today value many forms. Some students take individual action, promising roads to fulfilling the American Dream, and are willing to fight for this diversity. reaching out to low-income communities as volunteers which American society believes is worth the fight. for college admissions, explaining financial aid forms, Student activism plays important roles in the nation’s While the grants today cannot replace most loans and tutoring students of all ages. Some students work struggles for equality and fairness. Students fought related to education, they paved the way for other and continue to fight for equality across races, government programs at all levels and for major With broader admissions across race and religions, genders, and sexual orientations. Colleges university financial aid campaigns to further the fight gender, supported with Pell Grant funds, and universities bring together students of all for education. With more students eligible to attend backgrounds and—with education as the catalyst— American university systems grew to college, the quality of American universities has these students notice and speak out against injustices. support national ambitions. improved. Before Pell, only a small segment of the Now, students are speaking out against threats to the population could attend. With broader admissions economic diversity, a hope for all Americans that across race and gender, supported with Pell Grant closely with administrators and faculty at a university the Pell Grant made a reality. When schools, states, funds, American university systems have grown to to increase economic diversity and make students feel or the federal government announce budget cuts or support national ambitions. A larger eligible student welcome regardless of economic background. tuition increases, students rally to keep our schools population led to a larger talent pool from which economically diverse. While there have been gains Examples of organized student efforts exist across schools could admit students and a greater eligible and setbacks in the struggle for economic diversity, the country. Students at the University of Illinois- population base to support the growth of both public the Pell Grant defines this struggle. Chicago (UIC) have made a major impact by working and private institutions of higher learning. with their administration over this past year. At Students and schools use Pell Grants as a proxy to UIC, a large public university, many students come Former Pell Grant recipients form the judge economic diversity at a school. While students from lower-income backgrounds, and 40 percent of backbone of the many professions that sometimes have difficulty mobilizing around an UIC students receive Pell Grants. A key component require a college degree. issue, threats to the Pell Grant galvanize student of UIC’s mission dedicates the university to provide activism across the political spectrum, for recipients education access and support for a socioeconomically and non-recipients. Students realize the importance Thanks to the Pell Grant, students like me grew up diverse student body. However, yearly tuition of ensuring that all students dedicated to their own believing that college would be accessible to anyone increases and declining state support have challenged education can attend college. Students and schools who desired to attend. Students from diverse economic UIC’s ability to fulfill this commitment. In response, still view Pell Grants, with good reason, as the core backgrounds are no longer novelties. Universities teams of UIC students work to improve campus safety net for keeping college accessible. Pell Grants define themselves through their student bodies, and financial literacy, economic awareness, and an remain the hallmark measure of economic diversity universities today have diverse student bodies. Pell expanding variety of diversity programming. UIC because small changes in grant eligibility shake the Grants brought students to higher education in mass students do not face any challenge to access with national education community, from enrollment from middle and lower economic backgrounds. This apathy, but rather engagement. numbers to the student debt burden. not only improved the overall quality of education

24 REFLECTIONS ON PELL June 2013 Personal Facts & Reflections 25 However, this dream is not new. It became part It became part this dream is not new. However, with the ago Dream 40 years the American of Students day. every changing lives Pell Grant, and inclusive the country attend throughout of because more accessible schools dramatically the Pell Grant. like programs economy costs and a weak While rising education for aspirations national to challenges present as model of serves access, the Pell Grant educational activism. student of and the roots American values to graduate from college, and current students are key players in making that dream a reality. years out of sheer habit; Pell Grants change lives and lives change Pell Grants sheer habit; out of years times over. many their cost repay Student advocacy can be both incredibly empowering and effective. The conversation revolving around socioeconomic diversity should involve all students, regardless of their individual level of financial need. Students have unique perspectives on their needs and those at their institutions. Everyone shouldhave the opportunity politics, national student groups can speak with can speak with groups student politics, national Grants. Pell of on the value voice one coordinated last 40 did not these grants that recognize Students activism is also changing in fundamental ways. ways. is also changing in fundamental activism have groups advocacy student student-led National in common causes for unite to banded together and the Pell Grant to challenges recent of the wake Student of in the new Coalition similar programs divisive increasingly In a time of (COSA). Advocates and the political machinery listened. Student Student and the political machinery listened. aid programs. Students made their opinions known made their opinions known Students aid programs. socioeconomic diversity and class issues. socioeconomic diversity financial crisis, legislators the recent Throughout cutting the through slash budgets to attempted have groups Student and similar programs. Pell Grant our most important save the country rallied to across These student enterprises take multiple forms. forms. multiple take enterprises These student University Washington at students example, For with their admissions and Louis collaborate in St. lower- to outreach improve to financial aid offices held have Smith College at Students income students. on focused and workshops conversations numerous At Duke University, St. Louis University, and University, Louis St. University, Duke At Louis, the student in St. University Washington for U/FUSED (United found to worked governments a now Socio-Economic Diversity), Undergraduate combining organizations student of network national within schools. economic diversity promote to efforts out of sheer habit; Pell Grants change lives and Grants habit; Pell sheer of out times over. many cost their repay voice on the value of Pell Grants. Students Students Grants. Pell of value on the voice years 40 last did not these grants that recognize In a time of increasingly divisive politics, national national divisive politics, increasingly In a time of with one coordinated can speak groups student THE PELL GRANT: of others to their choice, and the values and practices which shape them and the communities in which they A Signal of Value live. They must do this more or less self-consciously— in some cases with little awareness of the ways in which these factors have circumscribed their choice. They may experience their decision as a free choice, The Pell Grant program is a tool to assist but it is one which has been adapted to the limited in the democratization of postsecondary options set by their circumstances (emphasis added; opportunity embodied in the Morrill Act Bridges, 2006, pp.15-16).

of 1862. It is through this lens, I believe, that the importance of the program is best understood. As a former Pell Grant recipient myself, I understand this message firsthand. t is targeted to address the financial barriers to Through my own experiences and years teaching in CHRISTOPHER M. college participation brought to the forefront low-income and affluent compulsory schools I have MULLIN, Ph.D. I by the Truman Commission’s report Higher come to find it is individual circumstance that frames Education for American Democracy in 1947. At the opportunities available to us. As a child, did you PROGRAM DIRECTOR FOR POLICY ANALYSIS its core, the Pell Grant program seeks to empower have a comfortable bed to sleep in or did you sleep in American Association of students whose lineage neither afforded nor a bathtub because bullets could not penetrate its cast Community Colleges destined their participation in education beyond compulsory schooling. While some believe postsecondary education functions as a free market in which students While some believe postsecondary education choose between an unlimited number of functions as a free market in which students choose between an unlimited number of options, others options, others understand that people understand that people have an identity that is have an identity that is derived from their derived from their experiences and the communities experiences and the communities in which in which they live—a social construction of reality they live—a social construction of reality and, and, concomitantly, opportunity. The theory of concomitantly, opportunity. adaptive preference suggests:

iron frame? As an adolescent, did someone expose That in choosing what they will do, how they will you to possibilities or reinforce limitations? Did you spend their time or resources or what kind of life they attend a high school with a college-going culture or will lead, people are affected by or take into account, did your high school continually fail adequately yearly for example, what they can afford, the likely responses progress? If you answered yes to the latter part of

26 REFLECTIONS ON PELL June 2013 Personal Facts & Reflections 27

Lemann, N. (2000). The big Lemann, N. of test: The secret history the American meritocracy. Straus, Farrar, New York: and Giroux. REFERENCES (2006). Adaptive Bridges, D. justice and preference, context of identity in the in widening participation Ethics and higher education, 15–28. Education, 1(1), rather than shying away from the unknown in search the unknown from away than shying rather made in students The investments the probable. of to value are an expression of the Pell Grant through nation a democratic to and a commitment the student citizenry. an educated by perpetuated The potential value of all people is a cornerstone of all people is a cornerstone of value The potential in the Declaration the American ethos embedded equal. are created all people that Independence: of not was program in the Pell Grant Participation those destined limit opportunity to to conceived It is a the opposite. quite in fact, it was succeed; to are we Unfortunately, capacity-building program. grounded seeing policy actions and research interest their probability of in terms the student of in the value than rather attainment of meeting some level of as an asset fostered student seeing each prospective the workforce. by the institution and needed by its creation, years after refines itself 40 As the program is possible, what think of to well it serves our nation

Participation in the Pell Grant program program Grant in the Pell Participation to limit opportunity to conceived not was was it succeed; in fact, to destined those is a capacity- It quite the opposite. program. building developed to be an aptitude, not achievement, test be an aptitude, not achievement, to developed (Lemann, 2000). limited to low-income students. A part of the rise A part of students. low-income to limited the it sends to is the message in tuition discounting value! have You recipient: than rather assign value exists to a temptation Yet it has been is not new; rather, it. This tension attribute policy educational of evolutions in various present development the example, for and practice. Take, explicitly some debate, after was, which the SAT, of community, one’s self, and future generations. concept unspoken yet it is this omnipresent I suggest strategy underpins the investment that value of a reinforcing In fact, the idea of the Pell Grant. of in them is not investing expressly by value student’s move beyond them. That each member of society has an inherentvalue and that that value—which may be lying dormant—can and must be exposed to an environment where it may be identified and fostered for the betterment of the economy, these questions, or others like them, you understand them, you these questions, or others like circumstance. of the limitations The Pell Grant program sends a clear message that the struggles and challenges that envelope one’s existence need not restrict the desire to nd it is this experience which grounded me circles, there was a prevailing sentiment that the Give ‘em Hell… in the work that I have enjoyed for 34 years Black and White schools were separate but equal— A supporting first-generation, low-income but that was not really the case. Give ‘em Pell students. I still enjoy training the staff who work At 9 years old, my recollection of all of the legal with these students today. for Another proceedings in court is sketchy at best. But, in my It was over 40 years ago, 52 in fact, that I was a young mind, I did understand that there was a 40 Years! plaintiff in the lawsuit to desegregate the Memphis prevailing unfairness with respect to the conditions City Schools. The lawsuit, Deborah A. Northcross in which “Negro” children (we were Negroes at that et al vs. The Board of Education of the Memphis time) were being educated. The buildings were not City Schools, was filed in 1960 (six years after the well-maintained and the books were “used” from I am particularly landmark Brown decision) because the Memphis the schools that White students attended. In my honored to school district was not acting with “all deliberate young mind, this lawsuit that caused me to be named recognize this speed” to integrate its schools. Although, in some a plaintiff would in the long run level the playing milestone of the Pell Grants as a vehicle for social justice because I was a part of a bit of social justice history in Memphis, TN.

DEBORAH NORTHCROSS

EXECUTIVE DIRECTOR

SAEOPP Center (Southeastern Association of Educational Opportunity Program Personnel)

WARREN K. LEFFLER. SIGNING OF THE CIVIL RIGHTS ACT, 28 REFLECTIONS ON PELL June 2013 APRIL 11, 1968. Personal Facts & Reflections 29

The Pell Grants program was a powerful weapon weapon a powerful was program The Pell Grants on Poverty in the War social and is a was program The Pell Grants from students has moved that justice strategy become to independence, social dependence to society and to contributors self-supporting the economy } } So, on the occasion of the 40th anniversary of the Pell the of 40th anniversary the on the occasion of So, is: sure for I know what Grants, } } “Give a call to rally these reasons, I would And for another 40 years! ‘em Pell” for ‘em Hell…Give that our state Board of Regents was to vote on a 7% on vote to was Regents Board of our state that next year! for tuition and fees increase in I have worked with first-generation, low- with first-generation, worked I have for TRIO Programs in the students income seen the Pell and have years 34 least at to with the opportunity them provide Grants a education, higher pursue make a choice to with more them on par put would that step students. advantaged cover as much of a student’s college expenses as it expenses as college a student’s of as much cover only covers today Pell Grant The maximum used to. a public four- about one-third attending the cost of of three-quarters it covered ago 30 years college; year 1980s, tuition since the early the cost. Reportedly, of out 538%, beating increased by have and fees 288%). 118%) and health care costs (at (at inflation heard recently I even is pretty unbelievable! That other words, the Pell Grants assist in getting students students assist in getting Pell Grants the other words, and the support postsecondary education, into postsecondary Andservices them in keep education. the supports a partnership clearly although such leading the world of goal Obama Administration’s in 2020, there are those by graduates in college and the Pell Grants of the growth say who Washington cannot continue. services TRIO Programs support like rates costs and high interest With increasing college the Pell Grants of loans, the importance on student it remains an integral not diminished; has certainly although it does not a financial aid package, part of beyond their imagination. Pell has been a perfect Pell has been a perfect their imagination. beyond TRIO and other support like programs partner with In lives. in students’ game changer be a services to work history has been witnessing the rewards that that has been witnessing the rewards history work the grants. of because receive Pell recipients provide to continue old, the Pell Grants 40 years At degrees and careers to students propel to the impetus I have worked with first-generation, low-income low-income first-generation, with worked I have least 34 years at for in the TRIO Programs students them with provide seen the Pell Grants and have higher pursue a choice to make the opportunity to put them on par with would that a step education, my of the joys One of students. more advantaged concepts for which I still work today. I still work which concepts for be the social justice to I believe But again, what is choice and educational desegregation of impact the of the 40th anniversary celebrate As we equity. similarly. its impact characterize I would Pell Grants, As an aside, I find it interesting that even more thaneven that As an aside, I find it interesting decision, the issue the Brown one half century after on remains somehow segregation outlawing of change; often the terms radar screen, but education’s Action, Educational Affirmative Diversity, hear now we Opportunity… those Educational Equal Access, Blacks just wanted to be around them—and that was was them—and that be around to Blacks just wanted choice of more a matter all. It was at not the point all children In other words, equity. and educational their choice with of a school attend should be able to the same resources. field. The impact of the lawsuit was that the school the was that of the lawsuit field. The impact not without integrated—but eventually district was court-ordered plans. several pushback and me that to interesting it was note, On a personal that the impression Whites gave often desegregation TARGETING STUDENTS WITH FINANCIAL NEED: The Pell Grants’ Greatest Strength

Like millions of other students, financial aid played a critical role in my college enrollment processes and decisions.

high-achieving high school student, I had LAURA W. PERNA high educational aspirations. My parents were extremely supportive and encouraging, PROFESSOR A University of Pennsylvania but the ability to pay the costs of attendance was a real concern, especially as I was the oldest of four children and we all expected to attend college. My family and I had little direct knowledge of how to navigate the complexities of student financial aid and we received little useful guidance or information from the high school counselor. As a result, we had little understanding of the nuances that differentiated the several different awards that appeared on my financial aid notification letters. But I was very aware of how valuable grants were in a package that also included student and parental loans—money we repaid over many years—and work study—money I earned through hard labor in my position in the dining hall. I had no idea that the federal and institutional grants I received were awarded based on my family’s

30 REFLECTIONS ON PELL June 2013 Personal Facts & Reflections 31 financial realities that limit the ability of students of students the ability limit financial realities that costs college pay to families low-income from or other sources. Students earnings, savings, through also face other difficulties families low-income from the given college, and through into in their path and a income family between correlation positive to are known other resources that of wide range choice, and success, enrollment, college promote navigate the many dimensions of college life (i.e., (i.e., life college of dimensions the many navigate low-income from students social capital). Moreover, to less willing than other students families are often loans to costs. This aversion college pay use loans to with the risks involved given appropriate, is often first in are the students when especially borrowing, relatively and have college attend their families to and preparation. achievement academic of levels low based on financial need has been an important an important need has been based on financial and state awarding the trend of to counter-balance aid based on non-need-based institutional financial academic of measures narrow particularly criteria, and institutional Although most state achievement. on based be awarded to dollars continue grant awarded of these dollars financial need, the share time. over has grown based on non-need criteria based on Pell Grants of targeting The continued direct the many given financial need is essential, high-quality including access to and academically courses, shared understanding high school rigorous capital), cultural (i.e., college of the expectations of optimally to about how information and access to in 2007–08, compared with fewer than one percent one percent than with fewer compared in 2007–08, incomes family with undergraduates dependent of Pell Grants of targeting $60,000. The exceeding Student Aid report, Pell Grants represented 20 represented report, Pell Grants Aid Student aid, all grant of 37 percent all aid, and of percent in 2010–11. nationwide undergraduates by received with the students to Pell Grants of The targeting the program’s incomes is one of family lowest Board, the College to strengths. According greatest with about two-thirds undergraduates dependent of Pell Grants $30,000 received incomes below family Clearly my story is not unique. The conclusion that that unique. The conclusion is not story my Clearly enrollment, college own my to mattered “money” and other college-related choice, persistence, been has with what experiences is consistent researchers: need-based well-established many by with a host of associated are positively grants effects and the positive college-related outcomes, with students for are greater grants need-based of incomes. Isolating than higher family rather lower has been a specifically of Pell Grants the benefits of the importance Yet researchers. for challenge the reality that by is implied Pell Grants federal aid. need-based grant of are the foundation they Board’s 2011 Trends in the College to According financial need. I only knew that these grants made my made these grants knew that I only financial need. of University the at as an undergraduate enrollment possible. Pennsylvania I had no idea that the federal and institutional and institutional the federal I had no idea that based on my were awarded I received grants these that knew need. I only financial family’s as an undergraduate enrollment made my grants possible. Pennsylvania of the University at 32 REFLECTIONS ON PELL June 2013 Personal Facts & Reflections 33 countless students over the past 40 years. Although 40 years. the past over students countless to be required will likely changes some programmatic the Pell Grant’s expenditure constraints, meet federal the financial barriersprimary contribution—reducing from students for opportunity limit educational that preserved. be families—must low-income future role of the Pell Grant must recognize the recognize must Grant the Pell of future role has made the program that contributions undeniable of choice, and success access, college promoting to including academic preparation and achievement, and achievement, including academic preparation and information, and encouragements, support structure the program are also critical. Moreover, dollars available target to as efforts has limitations also come students on the most financially-needy about information limiting early the expense of at the determine to the aid. But efforts eligibility for The Pell Grant program has also experienced program The Pell Grant its purchasing time in sustaining over challenges the maximum Board, the College to According power. higher in constant were Pell Grants and average in the past three point any at dollars in 2010–11 than of growth rate faster even an decades. But, reflecting Pell Grant the maximum attendance, in the cost of room, tuition, fees, of just 32 percent represented and 14 institutions public four-year and board at institutions four-year non-profit private at percent and 16 percent 42 percent from in 2011–12, down reflecting a in 2001–02. Moreover, respectively Pell Grant increase in the number of substantial expenditures nearly Pell Grant total recipients, 2008–09 and 2010–11 in constant doubled between given not sustainable is likely dollars—a trend that resources. federal of on the availability constraints more than one-third Board reports that The College Pell Grants received undergraduates of (35 percent) in 2000–01. percent just 20 in 2010–11, up from to ensure alone is insufficient Pell Grant the Clearly, degree to choice, and persistence enrollment, college as other forces, students, low-income for completion on their finite time, and their own lack of knowledge of knowledge own lack and their time, on their finite and processes. aid programs about financial understanding is particularly great among those who great understanding is particularly being more knowledgeable. benefit most from would provide to unable often are counselors school high But, high student-to due to the required information non-college-related countless counselor ratios, pulls form. Many students and their families lack early and their families lack early students Many form. financial aid, and understanding of information and Pell Grants which to limiting the extent thereby to effectively aid can serve financial other sources of as such other college-related behaviors promote coursework. The lack of rigorous taking academically for and being admitted to a college or university or university a college to and being admitted for financial aid application the federal and completing have completed many other steps, including applying other steps, many completed have the likelihood of degree completion. degree completion. of the likelihood is not without its challenges. program The Pell Grant remain opaque, and application Eligibility criteria do not students are cumbersome. Often procedures they after until a Pell Grant will receive they that know Without Pell Grants and other need-based grant aid, grant and other need-based Grants Without Pell would families low-income from more students even in off-campus long hours each week be working completion, increases time to that jobs, a behavior in academic and engagement reduces time for and reduces on campus, extracurricular activities countless students over the past 40 years. 40 the past over students countless contributions that the program has made to the program that contributions access, choice, and success of college promoting But, efforts to determine the future role of of role the future to determine efforts But, the undeniable recognize must Grant the Pell 34 REFLECTIONS ON PELL June 2013 History, Facts, Policy Recom- mendations

35 Pell Grant1972 BASIC EDUCATIONAL OPPORTUNITY GRANT (BEOG) BEOG Added to HEA providing a maximum annual grant of $1,400 to low-income students. EOG 1978 Program continued but renamed Supplemental MIDDLE INCOME Educational Opportunity STUDENT ASSISTANCE Grant (SEOG) ACT (MISAA) MISAA extends BEOG to more moderate 1965 income students.

HIGHER EDUCATION ACT (HEA) Legislation1980 HEA enacted. Title IV of HEA (Student Assistance) includes PELL GRANT the Educational Opportunity Grant (EOG), the first BEOG renamed Pell program of federal student Grant in recognition of its aid grants for low-income original sponsor Senator students Higher Education Claiborne Pell (D-RI)

36 REFLECTIONS ON PELL June 2013 2010 History, Facts & Policy Recommendations

HEALTH CARE & EDUCATION RECONCILIATION Pell Grant Health Care and Education Reconciliation Act eliminates the federally-guaranteed student loan program (FFELP) and 1992 directed part of the savings to make permanent the increased HEA AMENDMENTS Pell Grant annual maximum and indexed the maximum to the HEA amendments Consumer Price Index introduce the Free Application for Federal Student Aid (FAFSA) 2012

1994 2007 40TH ANNIVERSARY Pell Grant 40th LegislationPELL GRANT PELL GRANT anniversary; over 150 EXCLUSIONS ANNUAL INCREASE million Pell Grants awarded to students who College Cost Violent Crime Control would not otherwise Reduction and Access and Law Enforcement Act have the opportunity to Act increases the excludes federal and state attend college. House FY12 annual maximum inmates from the Pell Appropriations Bill Cuts Pell Grant to $5,400 Grant program Pell Grants by $44 Billion for 2012-13 trends in receipt of pell grants and percentage of costs covered

NUMBER PELL RECIPIENTS SINCE 1973-74

10M

8M

6M

4M

2M

0 9 5 5 5 75 98 200 200 199 1 19

SOURCE: U.S. Department of Education, 2010-2011 Federal Pell Grant End-of-Year Report

38 REFLECTIONS ON PELL June 2013 PERCENTAGE UNDERGRADUATES RECEIVING PELL GRANTS SOURCE: U.S. Department of Education, 2010- 2011 Federal Pell Grant End-of-Year Report; U.S. Department of Education, National Center for

50% Education Statistics, Opening Fall Enrollment in Higher Education, 1965; Higher Education General 40% Information Survey (HEGIS), “Fall Enrollment in

Institutions of Higher Education” surveys, 1966 History, Facts & Policy Recommendations 30% through 1985; Integrated Postsecondary Education Data System (IPEDS), “Fall Enrollment Survey” (IPEDS- 20% EF:86-99); and IPEDS Spring 2001 through Spring 2011, Enrollment component 10%

0 9 5 5 5 75 99 98 200 200 1 1 19

PERCENTAGE COST COVERED BY PELL GRANTS SOURCE: U.S. Department of Education, 2010-2011 Federal Pell Grant End-of-Year Report; U.S. Department of Education, National Center for Education Statistics, MAX. AWARD AVG. AWARD 75% Higher Education General Information Survey (HEGIS), “Institutional Characteristics of Colleges 60% and Universities” surveys, 1965-66 through 1985-86; “Fall Enrollment in Institutions of Higher Education” 45% surveys, 1965 through 1985; Integrated Postsecondary Education Data System (IPEDS), “Fall Enrollment 30% Survey” (IPEDS-EF:86-99) and “Institutional Characteristics Survey” (IPEDS-IC:86-99); IPEDS Spring 15% 2001 through Spring 2011, Enrollment component;

0 and IPEDS Fall 2000 through Fall 2010, Institutional Characteristics component. 0 6 6 6 6 1 7 98 20 200 199 1 19

39 The Early Years of the Pell Grant

he goal of assuring that everyone has the The first example of comprehensive federal Today, the Pell resources to attend college emerged as part education legislation was the National Defense Grant is the T of a national conversation about civil rights Education Act (NDEA), which Congress passed in foundation of and the loss of talent to poverty that emerged during 1958 in response to the Soviet launch of Sputnik. the post-World War II years. In 1965, the Elementary and Secondary Education federal student Act launched a comprehensive set of programs, The Basic Educational Opportunity Grant (BEOG) aid policy. including the Title I program of federal aid to was one of the last parts of the anti-poverty and civil disadvantaged children to address the problems rights laws of the 1960s and 1970s that defined the of poor urban and rural areas. In that same year, federal role in assuring equal access to education. JOHN LEE the Higher Education Act authorized assistance for The Higher Education Amendments of 1972 postsecondary education, including financial aid completed legislative work on the major programs PRESIDENT programs for needy college students. The passage of that define the federal role in higher education JBL Associates laws such as Title VI of the Civil Rights Act of 1964, today. The centerpiece of that legislation was the Title IX of the Education Amendments of 1972, and authorization of the BEOG, which was renamed Section 504 of the Rehabilitation Act of 1973 which the Pell Grant program in 1980. The legislation also prohibited discrimination based on race, sex, and included the reauthorization of the three campus- disability made civil rights and equity a permanent based programs (the National Direct Student Loan foundation of the federal effort in education. Program, the Supplemental Educational Opportunity Grant Program (SEOG), and the College Work Study This early education legislation had to overcome program) that had initially been authorized by resistance to any federal aid to education, outside of previous legislation. This completed the structure Impact Aid, based on The Tenth Amendment to the of the federal commitment to higher education that United States Constitution which states: “The powers included guaranteed student loans provided by not delegated to the United States by the Constitution, private lenders that was authorized in 1965. nor prohibited by it to the States, are reserved to the States respectively, or to the people.” Since education

40 REFLECTIONS ON PELL June 2013 History, Facts & Policy Recommendations 41 is not mentioned in the Constitution, it is perceived by veterans attending postsecondary education. In 1976, but over the years the benefits were improved, and many as one of those powers reserved to the states. together the Social Security and the GI bill provided an increasing number of veterans took advantage $6.5 billion in student benefits. The combination before their eligibility was lost. In addition, there was concern that the federal of Vietnam Veteran’s benefits and Social Security government should not provide support to religious Because the draft during the Vietnam War era education benefits provided over 4.5 times more schools based on the constitutional distinction exempted college students, a large share of recruits dollars to students than did the BEOG program. between church and state. Finally, there was the were not college bound when they joined the issue of segregation that complicated any debate These other two programs did not award aid based military. Given that the eligible population was about education prior to the Civil Rights Act. These on need. Without the unifying principle of need- comprised of military veterans and the fact that legal and political challenges had to be resolved based aid, the federal student aid effort could many did not take advantage of the program before the federal government could provide wide- have well evolved as a patchwork of aid awarded immediately after discharge, a large share of the spread aid for the specific purpose of helping low- recipients tended to be male and older compared income students pay for postsecondary education. The fledgling BEOG program was with the traditional college population of the time. introduced at a time when other federal Initially, the BEOG was a relatively small SOCIAL SECURITY EDUCATION BENEFITS program compared with financial aid available programs provided the bulk of financial aid. The increasing importance of postsecondary education to students from Social Security and the Veterans finance at the federal level was evident in changes Administration. The BEOG program was originally to students for a number of different reasons. The to Social Security in 1965 when benefits for children administered in the Department of Health, resulting effort would have been much less efficient of parents who had died or were disabled were Education, and Welfare, which meant that the and effective than the Pell Grant has proven to be. extended from age 18 to age 22 for students attending program was several levels below cabinet level a postsecondary institution. The House Ways & Means visibility. The Department of Education was not POST-KOREA AND VIETNAM-ERA GI BILL Committee explained this new provision in its Report authorized until October 1979. As a side note, The original 1944 Servicemen’s Readjustment Act, on the 1965 Social Security Amendments: Senator Pell was also one of the cosponsors of that generally called the GI Bill, was perhaps one of the landmark legislation. Under present law a child beneficiary is considered most successful federal programs of the era, which dependent, and is paid benefits, until he reaches age The fledgling BEOG program was introduced at a time proponents of federal student aid have continued 18, or after that age if he is disabled before age 18 when other federal programs provided the bulk of to identify as justification for expanding the federal and is still disabled. The committee believes that a financial aid. In 1973-74, the first operational year of role in student aid. The Post-Korea and Vietnam-Era child over age 18 who is attending school full time is the BEOG, 170,000 students received a total of $47.52 GI Bill was authorized by the Veterans’ Readjustment dependent just as a child under 18 or a disabled older million in awards. 1976-77 was the first full award Benefits Act of 1966. Given the success of the original child is dependent, and that it is not realistic to stop year with 1.94 million students receiving $1.5 billion GI Bill, there was great hope that this program could such a child’s benefit at age 18. in BEOGs. In that same year, Social Security awarded provide the same positive support as the original. In the beginning, the education benefits were not $1.43 billion to students. This was a peak year for Social Security benefits were designed to provide aid as widely used as had been the case after WWII, the GI Bill in which they awarded over $5 billion to to traditional age students, but not older students.

42 REFLECTIONS ON PELL June 2013 History, Facts & Policy Recommendations 43 from FinAid.org. Social Security Research Administration, Note #11: The History of Social Security “Student” Benefits Amendments Security “Social of 1965: Report of the & Committee on Ways Means on H.R. 6675,” March No.29, 1965, House Report 213. Pg. 86 “Omnibus Reconciliation Act of 1981: Report of the Committee on the Budget, United States Senate, to Accompany S. 1377.” June 17, 1981. Report No. 97-139. in Student Aid, 2011, Trends College Board Advocacy and Policy Center Digest of Education 205. Total Statistics, Table fall enrollment in degree- institutions, granting by level and control of institution, attendance status, and sex of student: Selected years, 1970 through 2010, NCES, 2011 REFERENCES figures historical Pell Grant …roughly 18 percent of students enrolled in enrolled students of 18 percent …roughly 2010 the by received a BEOG; 1976 of the fall 42 had increased to recipients Pell share of in the fall. enrolled the students of percent Grant Program still exists and has defined the federal federal still exists and has defined the Program Grant need-based The acceptance of in education. role by the Pell defined commitment aid and the federal 40 opportunity for educational has broadened Grant since 1972. The vision of students classes of entering has been realized. years those early today. The acceptance of family ability to pay for for pay ability to family acceptance of The today. grant federal awarding for as the foundation college loan aid, is the biggest of aid, along with the growth aid. student federal of in the history story the BEOG aid prior to student The major model of the GI Bill. Social Security and the GI Bill was to the for financial aid prior fill the need helped As the national the BEOG program. of authorization defined as expanding the number was policy goal in postsecondary enrolling students of and diversity and needs analysis accepted Congress education, with all the tinkering that, pay ability to family guide the Pell to continued have and amendments, aid philosophy The basic student Program. Grant of the Pell authorization finalized in 1972 with the the antecedents, it is not difficult to envision a federal envision a to difficult it is not the antecedents, different on very operated that aid system student the programs undergird those that principles than Over these decades, needs-tested student aid student these decades, needs-tested Over Education of Department the U.S. by administered student federal of form has become the dominant and given not inevitable, was This outcome grants. In 1976-77, 1.944 million students received a BEOG received In 1976-77, 1.944 million students 8.873 million. increased to the total 2010-11, and by of 18 percent roughly put it in perspective, To a BEOG; 1976 received the fall of in enrolled students had increased to Pell recipients 2010 the share of by in the fall. enrolled the students of 42 percent According to the College Board, in 2010-11, the Pell the College to According to made $34.762 billion in grants program Grant and military Veterans and the combined students, to $12.15 billion. This is a major benefits came the GI Bill awarded since 1976 when turnaround dollars as the BEOG. more than three times as many tailor the amount of aid to the educational and living and living the educational aid to of tailor the amount the financial and to the student, expenses incurred by and his family. the student to resources available CHANGES IN SOURCE OF FEDERAL AID had grown to about $7 billion a year by this time. by about $7 billion a year to had grown local, and private state, of Increasing amounts to available were also becoming financial aid Social Security, unlike that argued Congress students. provide explicit purpose is to whose programs to would be able for education financial assistance Social Security benefits for students over 18 were 18 over for students benefits Social Security reduce to an effort in 1981 as part of phased out Security the Social costs of structural the long-term part of was Pell Grant the of The success program. Security student for ending Social the justification assistance educational Federally-funded benefits. 44 REFLECTIONS ON PELL June 2013 History, Facts & Policy Recommendations 45 has over time been has over Brown v. Board v. Brown Pell Grants. Many have gone on to make enormous enormous make on to gone have Many Pell Grants. sciences, in the arts, in our society, contributions and public service. industry, But, just as become increasingly as our schools have eroded, Pell of race and class, so the promise by segregated federal, pool of has been jeopardized as the larger to and institutional funds has been diverted state, of allowing all students, regardless of background, to to background, regardless of all students, allowing of that Pell’s vision was Senator reach their potential. should desire, and drive with the talent, student “any higher education.” pursue be able to from benefitted have Since 1972, 60 million students

came from came from did for K-12 K-12 did for Brown Brown Brown v. Board of Board of v. Brown decision, striking down racially racially decision, striking down hat followed the U.S. Supreme Court’s Court’s Supreme the U.S. followed hat 1954 landmark Education was about integrating schools by race; the Pell schools by about integrating was Brown and for low-income about financing education Grants all colors. of class students working the through arose Pell Grants while the judiciary, equal But in its core visions for process. legislative essentially Pell Grant the opportunity, educational what higher education did for the American promise us closer to schooling: brought segregated elementary and secondary schools as elementary and secondary schools as segregated unequal. inherently T

RICHARD D. RICHARD D. KAHLENBERG FELLOW SENIOR The Century Foundation equal educational opportunity to higher education higher education to opportunity equal educational Opportunity the Basic Educational creating by its chief after Grant as the Pell known now Grant, Claiborne Pell. sponsor, Forty years ago, Congress passed, and the president president passed, and the Congress ago, years Forty of promise Brown’s extended that signed, legislation of Education of PELL GRANTS: PELL Education’s Higher Board v. Brown wealthier students in the form of institutional and more (44%) received merit aid than received state-based non-need “merit” aid and tax breaks for need-based aid (42%). Moreover, in 2007–8, the non-needy students. average amount of institutional merit aid exceeded the average need-based grant at both public and …the Pell Grant essentially did for higher private four-year colleges. education what Brown did for K-12 In the report, grants which had both a merit and schooling: brought us closer to the American need-based component were considered need- promise of allowing all students, regardless based. Students in the highest income quartile were of background, to reach their potential. overrepresented among non-need-based merit- aid recipients, and students in the lowest income quartile were underrepresented. NON-NEED MERIT AID

In late 2011, the U.S. Department of Education’s Another report, the College Board’s “Trends in National Center for Education Statistics documented Student Aid 2011,” found that institutions are a dramatic—and disturbing—shift over time in providing more than $5 billion in non-need aid. institutional grants for undergraduates from need- Reporting on the study for USA Today, Jon Marcus based to non-need-based merit aid. quoted one low-income student: “It just doesn’t make any sense. You don’t give the bloated guy the Of the $62 billion provided to undergraduates in cheeseburger when the starving man is starving.” grant aid in 2007-8, institutions were the single largest source, followed by federal, state, and Individual institutions often try to swim against private entities. In the academic year 1995–96, the the merit-aid tide. As Beckie Supiano noted in The report found, public four-year colleges provided Chronicle of Higher Education, St. Mary’s College of public and private colleges, even though less than one- 13% of students with need-based aid, and 8% with Maryland is seeking to redirect aid away from merit third of Americans 25 or older have a four-year college non-need-based merit aid. By 2007-8, the share to need-based grants, but the idea is facing some degree, because everyone benefits when universities of students receiving merit aid from public four- faculty resistance. Colleges worry about unilaterally advance research and educate more students. year institutions (18%) actually outnumbered the disarming in the war for talented students with high proportion receiving need-based grants (16%). test scores who can improve the academic quality of an institution, to say nothing of U.S. News & World The public return on need-based aid such as Private nonprofit four-year institutions, likewise, Report rankings. the Pell Grant is straightforward: it enables used to substantially tilt toward need-based all of us to benefit from the contributions of grants, but no more. Whereas in 1995-96, 43% of While merit aid may be rational for an individual students who, but for the aid, would not be students were provided institutional need-based institution, it is not particularly rational for the system able to attend and graduate from college. grants and 24% merit grants, by 2007–8, slightly as a whole. We all directly or indirectly help fund both

46 REFLECTIONS ON PELL June 2013 History, Facts & Policy Recommendations 47 $180,000 a year. In 1999–2001, none of the benefits none of In 1999–2001, $180,000 a year. those making more than $100,000 but from to went the benefits flowed of one quarter 2007-2009, nearly Deduction, which The Tuition Tax these families. to $160,000 a families making up to for is available to families the benefits of sends more than half year, making more than $100,000 annually. finding that the Clinton higher education tax breaks education higher Clinton the finding that postsecondary education. access to did not broaden According grow. to has continued the program Yet Statistics Education for Center a new National to in 2007–8 Benefits,” Tax Education report, “Federal of American to 47 percent went tax benefits college receiving with 27 percent compared undergraduates, has Since then, the Obama administration Pell Grants. the income up and down expanded tax breaks both but also $180,000 to levels ladder–raising eligibility benefits making the tax break refundable, which taxes. federal don’t owe families who lower-income found Sector Education a 2012 report from Moreover, aid, in the federal of an increasing proportion that Americans making to breaks, is going tax of form Burd, Stephen The report by a year. $180,000 up to Breaks Increasingly Tuition Tax on Up: How “Moving the Upper-Middle Class,” questions the failure Favor higher-education target tax breaks, which better to 2009. Over 1999 through billion from $70 totaled relatively to gone increasingly time, these breaks have $100,000 and families, making between wealthy associated with shrinking government. A 2003 government. with shrinking associated Paper Working Research Economic of Bureau National position, Rubin’s Long vindicated Terry Bridget by administration of Bill Clinton. Clinton’s Treasury Clinton’s Bill Clinton. of administration financier not Street a Wall Rubin, Secretary Robert the at as a wide-eyedknown Clinton radical, advised a better- provide aid would increasing grant time that expanding higher-education method of targeted seen as more politically access. But tax credits were benefit more powerful they viable, both because tax cuts are symbolically constituencies and because guidelines would govern the average size of grants. size of average the govern guidelines would public and private, both almost all colleges, Because to apply aid, the same rules would federal receive and no particular institution would everyone, virtually flag on merit aid. The the white waive be required to curtailing the merit-aid wars of “peace dividend” students end up benefitting low-income might even all. at college not otherwisewould attend who BREAKS TAX FEDERAL EDUCATION the idea behind Pell in which The other major way of is with the proliferation has been diluted Grants tax breaks. education higher non-need-based federal Board’s “Trends in the College level, On the federal $4-billion goes roughly that 2011” found Aid Student families tax credits and deductions to of in the form $100,000 and incomes between gross with adjusted the tax breaks was cost of (The total $180,000 a year. $14.7-billion in 2009.) well-off relatively to the big subsidies Ironically, under the Democratic families first originated example, if 1995-96 benchmarks were used, public were benchmarks if 1995-96 example, 1.5 times as least at provide need to would institutions and similar as merit grants; grants need-based many prioritize need-based aid over non-need merit aid. prioritize need-based aid over overall of the percentage The guidelines could look at an institution and the proportion by funds provided aid. Historic kinds of various receiving students of For targets. guide the appropriate practice could help To restore more of a sensible balance between more of restore To need-based aid and non-need-based merit aid—and federal Pell Grants—the the purpose of reinforce to if an institution that could stipulate government in some measure aid, it must federal receives institutions, which does not benefit the country as does not institutions, which a the states, trade barriers between In the case of whole. that the practice in recognition prohibits Constitution So why the nation. to is destructive competition such institutions subsidize government should the federal in merit-aid wars? engaged higher education of state, but it is unlikely to significantly increase the increase significantly to but it is unlikely state, as extent the same to in college enrollment overall need-based aid. in the battle a weapon merit aid is mostly Instead, individual or between states, between talent for The larger public benefit of state or institutional of state public benefit The larger might who students aid to non-need-based merit more with or without aid is much college attend well to may direct students Merit aid to justify. difficult a particular in institution or stay a particular to go The public return on need-based aid such as the Pell aid such return on need-based The public benefit to us it enables all of is straightforward: Grant the for but who, students of the contributions from from graduate and attend able to not be aid, would aid (even all federal explain why This helps college. is means-tested. has a merit component) which that Critics rightly worry that the growing tax breaks THE PUBLIC INTEREST IN STUDENT AID and Success, represents “the smallest share of college are problematic on two grounds. Because they are costs in the history of the program.” Some might defend the trends toward non-need built into the tax code, they don’t have to go through merit aid and toward tax breaks for upper middle The degree of unmet need for low-income students the discipline of surviving the regular annual class families by asking: Don’t we want to reward helps explain in part the enormous difference appropriations process. And tax breaks for those in hard work and merit? And don’t even families in college attainment rates for students in low- the $100,000 to $180,000 range, more than double the making six figures deserve help, especially if they income and high income families. Research by Tom median family income, don’t usually tip the balance have more than one child in college? Mortenson, cited in a 2011 Pell Institute report, for students deciding whether to attend college. “Developing 20/20 Vision on the 2020 Degree These are both worthy objectives, but as the Attainment Goal,” finds that over the last 30 years, The other major way in which the idea backers of the Pell Grant know, there is an even bachelor’s degree attainment by age 24 in the U.S. has behind Pell Grants has been diluted is more important matter of public interest at stake. skyrocketed by 45 percent for those in the top income with the proliferation of non-need-based Remember that households making $180,000 stand quartile, while for those in the bottom income quartile, at the 95th percentile of the American population. federal higher education tax breaks. the rate has increased just 2 percent. By age 24, And subsidies for college students are best justified students from the bottom half of the distribution have when they make the difference between attendance The silent and automatic nature of the tax breaks a 12.0 percent chance of graduating with a bachelor’s and non-attendance. The test for financial aid prompt scholars Sandy Baum and Michael degree, while those in the top economic half have a should not be whether it eases the pinch for families McPherson to ask why there isn’t more “scrutiny 58.8 percent chance. If we could raise everyone to the but rather whether students would not go to college in this age of attempted austerity” for “government level of attainment met by those in the top economic but for the aid provided. Tax credits are not a expenditure through the tax code.” Likewise, Sara half, the report notes, we would far outpace other make-or-break policy for families making $180,000 Goldrick-Rab of the University of Wisconsin notes countries in bachelor degree attainment. the way the Pell Grant can be for a recipient whose that tax credits for better-off families provide “extra family earns less than $40,000. At the elite colleges, which offer the best chance money to make sure they can have a vacation that for joining America’s leadership class, economic year, or they can buy another TV or a nicer car,” but Moreover, there is a limited pot of federal money inequities are even greater. Century Foundation “it is not for putting food on the table, and it’s not for financial aid. In 2010–11, the College Board research finds that students in the lowest paying the heating bill, and it’s not deciding whether estimates Pell Grants accounted for only about 15% socioeconomic quartile are 25 times less likely to or not the kid goes to college.” of total federal aid, as it competed with other federal be found on the campuses of the most selective programs: work-study, loans and tax breaks. Despite If legacy preferences in college admission are a form 146 institutions than students from the richest important efforts to expand Pell Grants, in 2010–11, of “affirmative action for the rich,” then tax breaks socioeconomic quartile. And, according to a 2011 the maximum grant covered only cover 34% of the for families making up to $180,000 a year are food analysis by The Chronicle of Higher Education, total costs of attending a public college, down from stamps for the relatively wealthy. despite a slew of financial-aid initiatives announced 69% in 1980–81, according to the College Board. The in the past decade, the percentage of low-income amount covered, says the Institute for College Access

48 REFLECTIONS ON PELL June 2013 History, Facts & Policy Recommendations 49 did for K-12 K-12 did for Brown the talent, desire, and drive”—irrespective of family of desire, and drive”—irrespective the talent, higher education.” pursue income—“should be able to done for higher education what what higher education done for life the improved immeasurably have schooling: they in turn, has Americans—which, millions of chances of ways. whole in countless our society as a benefitted be done on Senator to yet work But there is much with student “any vision in which Pell’s powerful Forty years after their creation, Pell Grants have have Pell Grants their creation, after years Forty Pell-Grant-eligible students at the wealthiest 50 the wealthiest at Pell-Grant-eligible students 2004–05 and between remained flat institutions actually 2008–09. Thirty-one and universities colleges Pell recipients. of proportion declines in the saw whether students would not go to college but college go to not would students whether the aid provided. for The test for financial aid should not be whether whether be not should aid financial for The test rather but families it eases the pinch for BIRTH OF THE PELL GRANT: IMMEDIATE PRIORITIES

Two questions came first for me at AAJC, both The Community ultimately relevant to the birth of the Pell Grant. Had a community college bill ever been introduced in College Role Congress? The answer was no. Then, were there staff in community colleges working in federal programs, who could tell what worked and what didn’t? The answer was a scattered few. he Pell Grant has, in fact, given hundreds The Pell Grant, now turning 40, of thousands more students the benefit of In response, the AAJC president, Edmund Gleazer, clearly stands with the Land- T college studies than have five GI Bills, the programmed me immediately for two trips—“to first of which spun the World War II victory into a get to know the field.” The first was to Dallas to Grant Act and the GI Bill as new social order that turned college from privilege to consult two illustrious “pillars” of the movement, the acts that have best served right for the returning veterans. President Bill Priest of the Dallas Community College national progress through District, and President Joe Rushing of the Tarrant After four decades, I’m still asked occasionally to County Junior College in Ft. Worth. Both responded educational opportunity put my account of the grant’s enactment into print. affirmatively on the prospect of a community college beyond high school. The story has to start with the senator himself. Two bill. Fortuitously, Priest had an upbeat staffer, unswerving priorities that propelled his historic Bob Leo, who he already had digging into federal Senate career have left his detractors stewing in poor grants. Leo would prove an essential advisor as FRANK MENSEL judgment. It was natural that, for a Rhode Islander the community college bill developed. With fresh and Coast Guard veteran, one priority was his laundry, I then headed for Honolulu and the annual FORMER CONGRESSIONAL determination to help save the oceans from irreversible meeting of the National Council of State Directors of LIAISON contamination. Equally focused was his desire to America Association Community Colleges. They were chaired by another of Junior Colleges universalize basic education through the 14th year, to prominent voice of the movement, S. V. (Marty) help Americans deal better with accelerating change. Martorana, who headed the community college agency for New York State. Both he and Leo began The latter priority was leveraged by his seat on the making Washington visits to help me. Bernard Senate’s Education and Labor Committee, where he (Bernie) Luskin, who was heading up federal became chairman of the Education Subcommittee programs for California’s Coast Community College when the Higher Education Act of 1965 was District, also became a regular visitor and helper. approaching reauthorization. About the same time, I was invited by the American Association of Junior

Colleges (AAJC) to lead its federal relations office

and congressional liaison.

50 REFLECTIONS ON PELL June 2013 History, Facts & Policy Recommendations 51 with accelerating change. The latter was latter The change. with accelerating on the Senate’s his seat by leveraged where Committee, and Labor Education the Education of he became chairman Education the Higher when Subcommittee reauthorization. approaching was 1965 Act of Equally focused was [Senator Pell’s] desire Pell’s] [Senator was focused Equally the through basic education universalize to better deal Americans help year, to 14th Education Act of 1965 was a five-year authorization. a five-yearauthorization. 1965 was of Act Education the House nor the Senate 1970 neither But by So a renewal. a quick or routine looking at was two-the through force in it kept extension temporary its successor. produced that siege year known increasingly Of the institutional associations as “the upon looked was as the Big Six, the AACJC was movement college new kid.” The community his staff arranged the introduction, I spent an hour I spent the introduction, his staff arranged the was interview The resulting with the senator. with Journal, the of article in the next issue featured I soon realized the chairman’s portrait on the cover. life. be his friendship for would reward my that Pell’s in Senator life a second The article itself found were spread of it Reprints for reelection. 1970 fight door went who school teachers by the state across his reelection. His incumbency door supporting to again in his not face a serious challenge would remaining terms. DELAYED REAUTHORIZATION the Higher programs, federal so many Like Earlier, a personal connection to Senator Pell came Senator connection to a personal Earlier, the I came into Soon after unexpectedly. way my College the Community of editor the association, if I could do an article on Congress. asked Journal the with the chairman of an interview I suggested to about his effort Subcommittee Education Senate After education. everyone’s to more years add two unfolded, the bill would never gain traction in its own never would the bill unfolded, chip. serve as a vital bargaining would right, but it community colleges. With only a cursory inspection, With only colleges. community get them to and told staffers he handed the bill to As the HEA reauthorization introduced. it formally THE RIGHT SPONSOR THE RIGHT it by draft bill in hand, I took had a When we on the Committee of see the chairman to appointment New of Sen. Harrison Williams and Labor, Education endeavors. legislative earlier I knew from whom Jersey, burgeoning state’s his of aware keenly He was just coming into full bloom, with two-year campuses always came to such conferences more versed in the became a cordial and frank exchange of views. I growing in number in most States. The other details than other conferees. She had been the leading simply informed her that community college growth institutional families were the American Association architect in Congress of the first Higher Education Act, would not allow AACJC to settle for the proposed of State Colleges and Universities, the Association working closely with the LBJ White House. schedule of institutional grants. She was very aware of American Colleges (later folded into the National of the growth of community colleges in her State. Association of Independent Colleges and Universities, THE VISION OF GREEN Months later, on a Saturday morning when I was or NAICU), the Association of American Universities, Education will always owe Representative Green a mowing the backyard, my wife called me to the the National Association of Land-Grant Universities great debt. It was her initiative in the 1965 Act that phone. She said, “It’s Edith Green.” Picking up the and Colleges, and the venerable American Council created the Educational Opportunity Grants (EOG), phone, I said, “Good morning, Madame Chairman.” on Education, whose members spanned higher the first federal grants to financially disadvantaged She said, “Frank, are you satisfied with the EOG.” education generally with the intent, among students who showed academic promise. It was When I replied, “Yes, I am,” she cut in quickly, said other purposes, of keeping common ground and Senator Pell’s vision that they turned into Basic “Thank you,” and hung up. I had wanted to complete cooperation working among the six. my response by saying, “Yes, I am, as far as they go.” My intention to go with Pell was never in doubt. …Senator Pell had just two steadfast allies But I didn’t get that chance. I never solved the riddle President Gleazer backed it. The proposition that the from start to finish. Besides the community of what the call was about. If she simply wanted other associations were backing was unacceptable colleges—the AAJC was then evolving into assurance that I liked the EOG, I thought my tone for community colleges. It was a formula to award the AACJC, and later still the AACC—he had conveyed it. Without the EOG, there might not have annual federal grants to universities and colleges, the dauntless yet somewhat controversial been the BEOG. From the success of the EOG, Congress based on enrollment that they had drawn up with support of the College Entrance Examination would more easily see the potential of the Pell Grant. Rep. Edith Green of Oregon, noted for her command Board, led by the vice president heading its Upon its introduction, the community college bill was of House action on higher education. The grants Washington office, Lois Rice. routinely assigned to the Education Subcommittee. would be made in this order: $1,200 per FTE in Our obvious next step would be a visit to Pell’s graduate work, $400 per upper-division FTE, and Educational Opportunity Grants (BEOG), because subcommittee staff, headed by a self-assured young $100 per lower-division FTE. It was strange that he felt merit was an unfair criterion for getting lawyer, Steve Wexler. I chose a time when Bob the senior associations could not see how unfair, unevenly prepared students of need into college. Leo and Marty Martorana could join me. Wexler insulting yet, their formula was to the fastest- already knew our purpose, and he wasted no time growing family in postsecondary education. My presence as “the new kid” proved advantageous on small talk. With our bill on his desk, he said, when the six gathered at times to ponder legislation It showed too they were underestimating us, if not “Gentlemen, I have a tradeoff for you. You support in the office of John (Jack) Morse, ACE’s federal taking us for granted. It must have seemed sure to them the BEOG, and we’ll find a way to use your bill in the affairs chief. Morse’s role, as the “dean” of the group, that Representative Green would prevail, as she had reauthorization.” Our smiles were an exuberant “yes.” was always warmly regarded and never in doubt. in the past, when the reauthorization eventually came In 1970, Morse asked me to join him in a visit to What the community college bill turned into in the to a House-Senate conference on the final bill. She Representative Green. Though I was uneasy, the visit 1972 act was a provision directing each State to form

52 REFLECTIONS ON PELL June 2013 History, Facts & Policy Recommendations 53

Expectations were high and growing. were high and growing. Expectations cover would grant a full that The promise colleges state at year a college of the costs largely proved colleges and community years. true in the early he said they were getting a scattered few, but most but few, a scattered getting were he said they and both the programs grasp of weak a showed the about whether talked We process. the grants specialists, and train grants might help association a proposal welcome USOE would me that he assured from With the green light favorably. intent that of drafting it. into Olson and I plunged Gleazer, for the position. Mallan had been in dialogue with Mallan had been in dialogue the position. for of Education Office the U.S. at specialists college and he Education), of the Department of (forerunner federal make to colleges had also begun encouraging a staff priority. programs verywas the able deputy I to me Most beneficial took up with the office, Claire Olson. As I inherited start with I with the USOE, she suggested dialogue programs. a senior specialist in college Carnell, Paul in interested very cordial and sincerely was Paul (Jack) John His staff associate, colleges. community community of proponent Orcutt, also became a strong if he was Carnell When I asked development. college colleges, community from proposals grant getting preceded me in directing federal affairs at AACJC. AACJC. affairs at in directing federal preceded me Shannon, then the William of friends us were Both of interview to me asked who vice president association Concurrent throughout the reauthorization, two other two the reauthorization, throughout Concurrent adding strengthen the community were developments the Pell Grant. and fuel to on Washington, voice college HELP FROM USOE campus of the budding network was Foremost I knew programs. on federal specialists focused who Ph.D., Mallan, the Harvard and admired John The House enacted its reauthorization first. The first. The its reauthorization enacted The House carrying Senate version, the BEOG, won Senate the stage 1972. Thus of weeks the early in approval committee, in the conference battle set for was both senior members of comprised as usual which and Labor Committees. the Education parties from be outdone, not about to were conferees The Senate House Members who by sometimes were as they homework. When the jousting had more time for was word the favor, in the Senate’s settled finally the BEOG. It for had gone some House Members that Pell, and one for Senator for a stunning victory was but not grateful were colleges the community which of years take it would that apparent boastful. It was it. the most of make to work expedited after year, within a flowing were The grants in and students campuses the USOE, to rulemaking by The high and growing. were Expectations State. every a the costs of cover would a full grant that promise colleges and community colleges state at year college years. true in the early largely proved remain fully responsible for facilities and operating facilities and for responsible remain fully of the floor establish to Congress be up to costs, and it as in the BEOG. the less advantaged, for opportunity that the Senate conferees would be united when the when be united would conferees the Senate that the final bill, he write would committee conference on the Senate Pell in a colloquy also joined Senator role. In theirfederal to the to bring clarity floor, should the States that emphasized they dialogue granted. When it came to education, the Education the Education education, When it came to granted. and House both the Senate of and Labor Committees on being the most bipartisan prided themselves The Ranking Member of Congress. of committees a progressive Javits, Sen. Jacob the full committee, Pell Senator assured not only Republican, York New on the Historically Black Institutions, but by 1972 the Black Institutions, but by on the Historically among far in front had surged colleges community institutions.” “developing UNITY PELL-JAVITS for success take not about to Pell was Senator awareness of community colleges was growing on growing was colleges community of awareness helped eventually which the Capitol, both sides of in the new Act, victory them score another important Title III’s institutional full eligibility for was which Title III targeted The 1965 Act grants. development in a few States, but most gave it short shrift. Yet the it short shrift. Yet but most gave States, in a few a so-called 1202 Commission to help community a so-called community help to 1202 Commission higher ed in the more effectively work colleges became productive The 1202 Commission system. for getting unevenly prepared students of of prepared students unevenly getting for college. need into It was Senator Pell’s vision that they turned into turned into they vision that Pell’s Senator was It (BEOG), Grants Opportunity Basic Educational criterion an unfair was merit because he felt FORMATION OF THE COUNCIL time. Some Members of Congress were getting their to join them for an open meeting in the Rayburn FOR RESOURCE DEVELOPMENT first ever calls from a community college president, Building to formalize the organization. Among a

From it came a $250,000 grant, with my office to who usually had been prodded by his grants specialist score of organizations that showed up, only two of conduct the training, and with the participants to to make the calls. As the House-Senate conference us were from higher education. Stan McFarland, qualify by application in which their college would on the HEA drew near, the calls multiplied. Once the who headed Congressional liaison for the National cover all expenses except the training itself, for a 12- conferees were officially named, I called as many Education Association, accepted the presidency, and week stay in Washington. community college presidents as I could reach in their Augustus (Gus) Steinhilber, counsel for the National states and districts urging them to make such calls School Boards Association, became vice president. The first class of six was all “guys,” who soon personally. I skipped those, of course, where I knew I was enlisted for its steering committee. Lee was became as eagerly immersed as I was in the HEA their grants staff had already preempted them to act. introduced as the executive director. reauthorization. It gave us a bond that outlasted our careers. Before the six left Washington, they had ORIGINS OF THE COMMITTEE The coalition chose to elect its president annually, dubbed themselves “Mensel’s Mafia.” They also pulled FOR EDUCATION FUNDING (CEF) and in the second year, when Steinhilber became president, I became vice president. I then followed together a draft charter for a grant specialists’ network The second major development was the formation in him as president for two terms, 1972–3, years that that would also attract our successive classes of grants 1969 of the largest and longest enduring coalition of inaugurated the Pell Grant funding, which was in specialists, and evolve soon into the National Council associations and institutions representing education my mind when the coalition was developing. It was for Resource Development, now CRD. Before long, in Washington. It was a direct and quick response another instance of community colleges opening new CRD had moved front and center as the professionals to President Nixon, who in his first weeks proposed ground for higher education. And the army of NCRD leading community college development. a FY’69 budget that would zero out LBJ’s major would again play a pivotal role. programs for education. He was sharply assailed They became an army of support for Senator Pell and by the professionals who felt the Great Society’s the BEOG. Olson and I worked with them to program CEF’s prominence and strength soared with a Elementary-Secondary Education Act of 1965 and the an annual fall conference in Washington that drew stunning victory in the second year. The larger pie Higher Education Act had not had the time to prove 125 registrants the first year and grew to more than that CEF was pushing was $1 billion bigger than the their merit. 800 within three years. Invited Congressional staff House Appropriations Committee had in mind. In the 21st century, that number looks like small change. But wes glad to rap with them on pending bills of interest. The coalition was first contemplated over cocktails before CEF, no one had ever dared to push an add-on For many from the campuses, the conference was by three education association leaders and two of that size in either subcommittee or full committee. their first visit to Washington and their revered Congressmen. In Charles (Charlie) Lee, a prized Capitol. They were eager and diligent about getting legislative strategist when he was serving Oregon The Nixon attempt to choke away the federal appointments with their own House and Senate Sen. Wayne Morse, they knew they had the right man partnership in education had been soundly beaten. offices, and extolling both their colleges and the BEOG. to mastermind the operation. Calling it the National The precedent of the larger pie would ensure that the Emergency Committee for the Full Funding of Likewise, the Congressional offices were in many Pell Grant was well funded until its fast-spreading Education Programs, they invited all interested parties instances seeing community college visitors for the first popularity fulfilled the intent that it become the

54 REFLECTIONS ON PELL June 2013 History, Facts & Policy Recommendations 55 at least as fast. Such dissatisfaction undermines undermines dissatisfaction Such least as fast. at as higher as much American competitiveness itself. education As growing numbers of students turn to community community turn to students of numbers As growing numbers cost, the lower courses at early for colleges the cost is growing is worth itself doubt college who Women are the growing majority of Pell majority of are the growing Women majority growing are the just as they recipients, as a whole, education in undergraduate study, also in graduate their growth propelling generally. and the workplace the professions, Pell Grants of the combination More than ever, door the foremost form colleges and community development, the American Dream, workforce to to is essential learning that and the lifelong most careers successfully. complete them in the forefront of enrollment growth in in growth enrollment of forefront them in the since community institutions, undergraduate growth. that still pace colleges } } afford. They’ve turned a blind eye to exorbitant exorbitant to turned a blind eye They’ve afford. solutions are obvious which prices, for textbook students college be tried. Community to waiting books spend three-fourths for typically as much benefits that tuition, an outrage spend for as they neither academic freedom nor workforce the middle class. nor traction for development } } this in detail looms as higher all of Documenting Pell funding keeping for best argument education’s be won’t cost—which both demand and abreast of job of possible unless the institutions do a better stabilizing costs. allowed easily too have and universities Colleges in the than change rise faster their costs to diminished the index. They’ve consumer-price freely too by Pell Grants of purpose and power could ill legions loans that into pushing students Pell Grants have become the life blood of rural rural blood of become the life have Pell Grants years several for which colleges, community urban and suburban ahead of moved have It puts in enrollment. colleges community } } joblessness, and in producing a workforce skilled a workforce joblessness, and in producing and possibly meet global competition, enough to serve rescue the sinking middle class. In order to more than its self-importance, interest the national and document itself to it to owes higher education capitalize on these trends, among others: for granted, which in part explains the phenomenal which granted, for Phoenix. of among others, the University of, growth While the nagging recession has spread uncertainty has taken the Pell Grant and political polarization, and fighting poverty in on still more importance profit colleges and universities that they can ill-afford they that and universities colleges profit deep analysis But the lack of granted. it for take to are actually they are, and what recipients the who of the case. The this is largely that suggests getting, are not taking Pell Grantssurely institutions for-profit community colleges and their students have reaped have and their students colleges community than other the Pell Grant benefits from greater have too they although higher education, families of enormously. benefitted non- enduring popularity should remind all The grant’s backbone of student financial aid, as it was being financial aid, as it student backbone of each disadvantaged for on campus custom-packaged for it. qualified who applicant OF PELL THE IMPACT decades, there’s no question that Looking back four SANDY BAUM & MICHAEL MCPHERSON

SENIOR FELLOW

George Washington University School of Education and Human Development

PRESIDENT

The Spencer Foundation

56 REFLECTIONS ON PELL June 2013 History, Facts & Policy Recommendations 57 Perhaps the program’s greatest greatest Perhaps the program’s the norm is establishing accomplishment be the not should education higher that enough to fortunate those of domain only own. it on their for pay be able to of this issue to highlight the advantages of a program a program of highlight the advantages to this issue of include a good mechanism for getting subsidies for subsidies getting for mechanism include a good need them most. those who postsecondary to education the to going is rightly these days attention A lot of public colleges funding for per-student dwindling more take society to and the need for and universities higher education making quality responsibility for It does not diminish the importance available. widely t is now widely accepted that many people who people who many that accepted widely t is now of advantage take the resources to do not have our nation postsecondarythe great education establishing the norm that higher education should higher education establishing the norm that enough to those fortunate of not be the domain only it on their own. for pay be able to along the same lines Pell or a program It is clear that social justice. A society of is needed in the interest be opportunities to people’s life young wants that their capacities and ambitions rather by determined must financial circumstances than their parents’ offers deserve help and that the investment pays off off pays the investment and that help deserve offers and lives individual improving of both in terms well enriching our society and our economy. of in terms is accomplishment greatest Perhaps the program’s I

America’s commitment to to America’s commitment increasing opportunities for need a hand to those who realize their potential. Over the past 40 years, the the past 40 years, Over has program Pell Grant of become emblematic Compelling Social Social Compelling Agenda Justice PELL GRANTS: PELL a Piece of One like Pell, which uses federal taxpayer funds to to think this way. We look at the many stories of struggling not only to provide access to postsecondary make college less expensive for those with the most students whose lives have been transformed because education, but also to provide basic health care to inadequate resources. of the opportunities provided by Pell Grants and we everyone, to improve early childhood and elementary/ want more of those stories. But we might actually be secondary education, to provide a support network Even if colleges did not charge tuition, many for people who cannot care for themselves, and more. people would still struggle to enroll—or at least to But we might actually be able to further No matter how we structure our priorities, we will enroll full-time or close to full-time—because they our social justice goals by taking the time never have enough money to accomplish all of these would not be able to afford to forgo the wages from to consider potential improvements to Pell. goals without worrying about whether the dollars full-time employment. Just paying for basic living are well spent. Anytime there are social needs going expenses without those earnings is nearly impossible unmet it is unjust to ignore efficiency issues. for many people. Moreover, many students face able to further our social justice goals by taking the higher day-to-day expenses because they also have Pell supports further education for people who have time to consider potential improvements to Pell. family responsibilities. Other students are fortunate completed high school. Clearly, the millions of people enough to have families that can help with their People concerned with social justice frequently think who have not completed high school face even bigger support while they are in school. While Pell Grants of focusing on efficiency as trading off equity for problems than those who have and are struggling alone cannot eliminate these financial barriers, they other values. But the reality is that being efficient in move us in the direction of leveling the playing field. furthering social justice allows us to move closer to It is not just a practical requirement but our goals. Suppose a worthy social goal is being met actually a moral requirement that in The importance of Pell Grants is well established, inefficiently—that is by using more resources than and fortunately there are only a few voices calling pursuing social justice we should try to are needed to achieve the ends. It might be possible, for the program’s elimination. But much of the make the program maximally effective and by making the program work better, either to use the discussion pits those who would like to see the minimally wasteful. freed resources to meet the goal more fully, or to use program absorb fewer taxpayer dollars against the savings to help address other social problems. those who believe that the current structure works to pay for college. So if Pell could accomplish what well, but the funding is woefully inadequate. In the This general idea applies to Pell Grants as well as to it does but spend a little less—and if that money interest of social justice, it behooves all of us to think other social programs. Health care, for example, is could go towards meeting the needs of this even carefully about the program’s future and how it often discussed in these terms. It is not just a practical more vulnerable population—that would be a good can best help us accomplish our goal of increasing requirement but actually a moral requirement that thing. It’s also true that if Pell could meet its present educational opportunities. in pursuing social justice we should try to make the accomplishments more cheaply it could use the program maximally effective and minimally wasteful. money saved to further postsecondary opportunities The path of least resistance is frequently to assume and success even more than it now does. that if a program has an important goal, all of the Pell Grants help millions of people. But no one money spent on the program is well spent. When concerned about the vast social and economic In designing policy, we have to think about how we a program is as visibly helpful in achieving its goal inequities in our society can believe that this program can use our dollars to affect people’s choices and as the Pell Grant program, it’s even more tempting is the solution to our problems. As a nation we are

58 REFLECTIONS ON PELL June 2013 History, Facts & Policy Recommendations 59 There may be ways to modify the design the modify to ways be There may it is even so that program Grant the Pell of achieve students helping more effective in are dollars taxpayer and so that goals their moving possible in as as efficiently spent allows that society a more just us towards its members. more of lives for better be strengthened if we move our focus from a one- from our focus move be strengthened if we more people for money more dimensional call for needed to the guidance and support providing to in spend on Pell more effective the dollars we make people’s lives. improving deficits. Instead of just “saying no” to the political no” of just “saying deficits. Instead should take we facing the program, now pressures social to our commitment renew this opportunity to do so means preserving the tremendous justice. To that also assuring while Grants Pell of contributions not with financial need are students to our subsidies and efficient effective, but are as fair, adequate, only a more just society us towards as possible in moving its members. more of for lives better allows that is a critical component program grant A generous opportunity and requires educational supporting of will The program and support. emphasis continuing Forty years after the birth of the Pell Grant program, program, Pell Grant the of the birth after years Forty nation struggles the as situation face a difficult we budget and unsustainable economy with a weak So if Pell could accomplish what it does but it does but what accomplish could Pell So if could money that if less—and spend a little even this the needs of meeting go towards more vulnerable would population—that be a good thing. for their efforts than student debt and lost time. than student their efforts for Pell the modify the design of to be ways There may in more effective it is even so that program Grant that and so their goals achieve students helping as possible as efficiently dollars are spent taxpayer allows a more just society that us towards in moving its members. more of for lives better effort, and skills on the part of the students. We We the students. of and skills on the part effort, problem difficult this is an extremely that recognize all creates raising it at and that address well to limits off render the matter unease. But trying to those who strengthens the hand of discussion for are ill-served some students use the fact that would least the particular (or at college attending by idea that discredit the whole choose) to they colleges expanded college support to continue should we students. disadvantaged opportunity for important. Postsecondary is increasingly education students many too that acknowledge to have But we that paths into money and are putting time, energy, many while with Pell Grants, out. Even don’t work show end up with little more to many too succeed, For most people, postsecondary education is the best is the best people, postsecondary most education For But there and lives. careers successful to gateway does require motivation, success and are exceptions, Are there changes to to Are there changes Does the program work as work Does the program Do we need to think need to Do we parents are paying their way.) are paying parents Perhaps the hardest question to introduce is introduce Perhaps the hardest question to using now all students the one about whether being in school than off are better Pell Grants least at another path, be following would they time. (The same question of some period of for whose students to least as much course applies at their programs in a timely manner are much manner are much in a timely their programs than those credentials complete to more likely through. slowly move who more focus students help would that the program line? the finish on making it across effectively and the best ways to organize their lives to to their lives organize to and the best ways their goals. accomplish additional grant about something other than only succeed? these students help would dollars that through progress who students that know We well as it could for that group of students? of group that as it could for well without guidance money provide Pell Grants recipients Many money. use that to about how about the best information very limited have them, best institutions for the study, courses of The Pell Grant program doesn’t just help young doesn’t just help program The Pell Grant It college. to go families low-income people from school. Many back to adults go a lot of also helps training are seeking specific occupational them of short-term. – frequently } } } } } } } } behaviors in ways that will help them achieve better them achieve help will that in ways behaviors its goals. accomplish society and help outcomes the Pell to improvements potential In considering asking ourselves by should start we program, Grant some hard questions. THE PELL GRANT PROGRAM: More than Just a Number

ut as the program continues to grow, so The Pell Grant program is the does its costs. The increase has been so flagship federal student aid B great that in recent years Congress has program that helps provide struggled to find enough money through the annual appropriations process to fully fund the grant for all college access to nearly 10 eligible students. The shortfall has led to an ever- million low- and moderate- increasing number of eligibility changes aimed at income students each year. lowering the cost of the program by making certain students ineligible. Unfortunately, these changes were not designed to better target funds or help students attend college, but to meet an underlying budget goal. The primary intent of recent major programmatic changes to Pell is, sadly, to solve a math problem.

Since 1976, the number of Pell recipients has grown by a whopping 470%, with the majority of that growth happening in the last five years. In the 1976- 77 award year, 1.9 million students received a Pell Grant. By the 2000–01 award year that number had grown to 3.9 million students. Fueled by legislation enacting more generous student eligibility criteria in JUSTIN DRAEGER 2007 (most of which have since been repealed) and a deep economic recession that drove Americans back PRESIDENT to school, the number of Pell recipients has grown National Association of Student Financial Aid even faster in recent years, ballooning to more than Administrators (NASFAA) 9 million students in 2010-11.

60 REFLECTIONS ON PELL June 2013 History, Facts & Policy Recommendations

61 This growth has not gone unnoticed in a fiscal proved very costly, have been repealed. After occurs each year is over a segment of federal spending climate where nearly every discretionary dollar is peaking in 2011, the CBO now projects that the costs that wouldn’t balance the budget even if all spending scrutinized by both political parties. In the 2000-01 of the program are expected to decrease and then was slashed to zero. Cutting Pell Grant funding or award year, the U.S. spent $8 billion on Pell Grants. flatten through 2021. Cutting the Pell Grant any decreasing student eligibility standards without Last year, that number was $35 billion, an increase of deeper will needlessly harm future students. examining spending in other federal programs is a over 330% in just 10 years. As a result, lawmakers on distraction from the true goal of a balanced budget. RECOGNIZE THAT BALANCING THE BUDGET Cutting Pell Grant funding to balance the budget does The shortfall has led to an ever-increasing WITH PELL IS MATHEMATICALLY IMPOSSIBLE more long-term harm than short-term good—and number of eligibility changes aimed at Our national debt continues to grow at ignores the value of the Pell Grant as an investment. lowering the cost of the program by making unprecedented levels, promoted by annual budget The median weekly earnings of a baccalaureate deficits that come up short on revenues and big on certain students ineligible. recipient are 65% higher than a high school graduate, expenditures. Simply stated, we are spending nearly according to the Bureau of Labor Statistics. Even $1.2 trillion more than we are taking in. If there is someone who attended some college but earned no both sides of the aisle are concerned about the rapid agreement on anything in Washington, DC these degree earns on average 13% more than a high school growth in program costs. Most Pell-watchers expect days, it’s that our current annual budget deficits are graduate. These earnings equal higher tax revenue additional changes to the program in the near future. unsustainable. In such a bleak fiscal environment, and ultimately more prosperity for everyone. shouldn’t every program be willing to take its fair Herein lies the biggest challenge to the sustainability share of cuts, including Pell? and future of the Pell Grant program: how do we LEGISLATE CHANGES THROUGH THE AUTHORIZING COMMITTEE, NOT THE protect the value and integrity of the program while In short, no. The idea that cutting a $35 billion a year BUDGET PROCESS at the same time managing future growth? Here are program will make any sizable dent in our annual four recommendations: deficit is not only mathematically impossible, it’s In recent years, education policy has taken a back penny-wise and pound foolish. At $3.5 trillion a year, seat to budget policy. Year after year more significant AVOID OVERREACTING TO PELL COSTS the vast majority of federal spending (more than 75%) changes to the federal student aid programs are While the Pell Grant program has experienced rapid occurs within mandatory programs like Social Security, enacted through budget and appropriation bills growth in recent years, that growth is expected to level than through the committees that oversee the off over the next decade, according to the nonpartisan Cutting Pell Grant funding to balance the authorization and structure of these programs. This is a serious problem. Congressional Budget Office (CBO). While the costs budget does more long-term harm than of the program increased most rapidly from 2008 to short-term good—and ignores the value of Do changes need to be made to the Pell Grant program? 2010, from $18 billion to $38 billion, the majority of the Pell Grant as an investment. Yes, absolutely. Changes must be made to ensure the that growth came from the recession (40%) and the sustainability of the program, and to ensure that the expansion of Pell Grants to students year-round (22%). program is meeting its intended goals and outcomes. Medicare, and other social welfare programs, military But this is the role of a Congressional authorizing Since 2010, the economy—and college enrollments— spending, and interest-only payments on the national committee, not the role of an appropriations has stabilized, and year-round Pell Grants, which debt. In fact, the majority of political infighting that

62 REFLECTIONS ON PELL June 2013 History, Facts & Policy Recommendations 63 An estimated 100,000 students have lost lost have 100,000 students An estimated of consideration any without eligibility Pell what is That graduation. to proximity their numbers. become when students happens As a country, we must continue to build on this build on to continue must we As a country, to the time and take shift gears must We success. in and future spending estimates current examine on the budget balance the refuse to must We context. enact policy changes to and resolve students backs of these steps Taking process. authorization the through students will increase stability and predictability for for succeeds this program and ensure and parents another 40 years. have proposed a “Pell Promise” for certain low low certain for a “Pell Promise” proposed have income, traditional-age high school graduates. one thing in common: they all have These proposals families and help students for increase predictability education. their college for plan and budget ON FUTURE SUCCESS BUILDING our most successful is one of program The Pell Grant on self- it focuses because social programs meaningful investments and makes improvement 75% of Nearly in the most vulnerable populations. families with annual come from all Pell recipients These funds per year. less than $30,000 incomes of the best needed, and one of much targeted, are well in future generations. can make we investments predictability in the Pell Grant program include program in the Pell Grant predictability mandatory discretionary to from changing funding streams. Others funding multi-year providing to still had not yet funded the Pell Grant program even even program funded the Pell Grant still had not yet be released scheduled to were though disbursements and can students How in little under a month. payment college for plan ahead and budget parents financial aid estimates provide cannot even we when year? to let alone year month, to month from deserve more predictability and parents Students increase to aid funding. Proposals in student lose eligibility under the legislative change. change. under the legislative lose eligibility an creating clause” not include a “grandfather Why least currently or at existing students, for exception to did not intend Appropriators students? enrolled wouldn’t clause but a grandfather harm students, meet the necessary budgetary them to allow 100,000 students An estimated numbers. The result? of consideration lost Pell eligibility without any have happens is what That graduation. to their proximity become numbers. students when INCREASE PROGRAM PREDICTABILITY aid student in the federal change of The rate budget due to has increased exponentially programs parents and restrictions. In 2011 alone, students bills as three separate whiplash experienced likely aid programs. student the federal to changes enacted has turned funding program of The unpredictability an into process and intimidating complex an already 2011, more than dizzying maze. In April more even Congress year, fiscal the federal through halfway was implemented retroactively for Pell recipients, Pell recipients, for retroactively implemented was away one semester were if students meaning even immediately would they earning their degree, from eligibility criteria were changed in a last-minute in a last-minute changed were eligibility criteria eligibility Pell decrease lifetime bill to appropriations felt advocates Many six years. to nine years from most students justifiable and that was the move within their education complete should be able to the change length. However, a program 150% of and asking probing questions. and asking probing policies, where this with budget-driven Compare a mathematical solve simply is to the end goal good implement to not necessarily equation, in December 2011, Pell Grant example, For policy. House Committee on Education and the Workforce and the Workforce on Education House Committee Labor and Health, Education, and the Senate to related consider legislation Pensions Committee subject-matter hold specific often aid, they student members and staff enable committee hearings that experts to listening by about the topic learn more to Second, authorizing committees are designed to take take are designed to committees Second, authorizing hold They policy changes. to approach a deliberative experts, subject-matter with hearings and consult explore issues practitioners, and researchers to the when example, For making changes. before committee members, and their staff, generally have have members, and their staff, generally committee and a committees on these long-standing histories Knowing the programs. of deeper understanding the means that and intent recipients the program’s enact to less likely are far committees authorizing consequences. in unintended result that changes committee. The benefit of using the authorizing processauthorizing using the of benefit The committee. is twofold. policy changes enact to and committees position are in the best committees First, authorizing the like programs to changes understand how to Congressional students. will affect Pell Grant The Role of Pell Grants in an Era of Rising Tuition Prices

As I reflect on 40 years of Pell Grants, I see a very different higher education landscape than was in place when the Basic Educational Opportunity Grant (BEOG) program—later renamed Pell Grants, after its chief champion, Senator Claiborne Pell of Rhode Island—was first created.

DONALD E. HELLER

DEAN

College of Education, Michigan State University

64 REFLECTIONS ON PELL June 2013 History, Facts & Policy Recommendations 65 But the bulk of this increase has gone this increase has the bulk of But of the number expanding to primarily rather program, the served by students the awards. of value the increasing than for 2008. In 1971, the average family in the bottom income in the bottom family 2008. In 1971, the average come all families) had to (the poorest 20% of quintile its own its income—either from of up with 42 percent to afford aid—in order financial resources or through had more 2008, this proportion By college. attend to the of or almost all 90 percent, over than doubled to middle income For year. that earnings for family’s 432 percent during this same period (Heller, 2011). this same period (Heller, during 432 percent changing tuition prices of understand the impact To them in examine to it is best affordability, on college and their families students ability of the to relation tuition increases over while those prices. For pay to incomes inflation, incomes. But like time, so do family prices. college as fast as have nearly not grown have the country over in the In addition, income growth with—as many decades has been uneven, last four income families out—higher pointed observers have the than those at more income growth enjoying the distribution. of bottom the average between the relationship Figure 1 shows institutions and public four-year at attendance cost of in 1971 and income quintiles income in five family to $7,020 in 2009, an increase of 1,767 percent. Tuition 1,767 percent. increase of $7,020 in 2009, an to from 1,225 percent, increased colleges community at price index increased $2,544. The consumer $192 to would help eliminate the cost barriers to college. the cost barriers to eliminate help would a public four-year university (College Board, 2001). (College university a public four-year when this foundation, that was The assumption could the student resources combined with whatever perhaps some work grant, a small state provide, borrowing, of modest amount and a very study, Since these halcyon days of the BEOG program, two the BEOG program, of days Since these halcyon risen at tuition prices have First, emerged. trends have of almost and in excess inflation, of in excess well rates Since or service in the economy. other good every colleges public four-year tuition prices at 1971, average $376 annually increased from have and universities citizens of the state. The price was by no means zero; by price was The the state. citizens of some charge did and universities most public colleges and board. room for charges and imposed tuition fees, modest, relatively era were But tuition prices in this for access primarily college and posed a barrier to And it is these the poorest families. from students help. designed to was the BEOG program that students close the gap helped The original BEOG grants afford could the poorest students what between little dollars, or zero college—generally for pay to the at an education of the cost more than that—and This helped university. public four-year average access to almost universal for the potential ensure Once the BEOG degree program. a baccalaureate after years funded, a couple of fully was program covered grant the maximum its 1972 creation, at attendance the cost of of 85 percent approximately higher education systems utilizing the “low tuition/ the “low utilizing systems higher education was college funding. The price of aid” theory of low all for access ensure in order to low, universally kept

ttending college has become much has become much college ttending graduating students for more important the same time high school, and at from

trend and the demand for college participation has has participation college trend and the demand for it. responded to was the BEOG program of the creation the time At their operated most states in Congress, being debated been well recognized, as the media has reported this this as the media has reported recognized, been well from 43 percent to 105 percent; for women, it went it went women, for 105 percent; to 43 percent from This 2011). (Heller, 123 percent to 84 percent from premium has wage the college of signaling effect to workers reflect that preference. Since 1971, the Since 1971, the preference. reflect that workers to those holding bachelor’s earnings premium for a college degrees—the extra income earned by possessing those workers to compared graduate For skyrocketed. a high school diploma—has only increased graduates college men, the premium for increasing inaccessibility of a college degree for for degree a college of increasing inaccessibility and moderate-income families, low- from students American society. the fabric of threatens require some our economy More and more jobs in paid postsecondary of training, and the wages form A for expensive more much it has also become This increased necessity them and their families. postsecondaryfor with the training, combined percent of the cost of attendance at a public at attendance of the cost of percent university. four-year …A couple of years after its 1972 creation, the creation, its 1972 after years of couple …A 85 approximately covered maximum grant families, the increase was from just over 13 percent of their income to over 23 percent. For families in the top income quintile, in contrast, the proportion increased from just 5.7 to 7.5 percent of income. As Figure 1 demonstrates, affordability decreased more as you INCOME QUINTILE move down the income ladder.

1971 2008 The second trend that has impacted college LOWEST affordability has been changes in funding for the % 42.0 BEOG, and its successor, the Pell Grant, programs. The 90.3% Pell Grant program has generally received relatively

SECOND strong bipartisan political support from presidential 19.3% administrations and Congress over the years. Funding 37.7% for the program has increased at a huge rate over the last three decades, from $926 million in fiscal year MIDDLE 13.2% 1976 to just under $30 billion in 2010, an increase 23.3% of over 3,000 percent that dwarfs inflation and even the increase in tuition prices. But the bulk of this FOURTH 9.7% 15.6% The decrease in the real (inflation-adjusted) value of the maximum Pell Grant, along HIGHEST 5.7% with the increase in tuition prices, has 7.5% eroded the purchasing power of Pell.

SOURCE: Heller (2011) increase has gone primarily to expanding the number of students served by the program, rather than for FIGURE 1: Proportion of family income required to increasing the value of the awards. The number of pay the cost of attending public four-year institutions, students receiving Pell awards increased from 1.2 to by income quintile, 1971 and 2008 8.1 million, or 646 percent, between 1975 and 2009. The maximum Pell Grant rose by a much smaller factor over the same period, from $1,400 to $5,350, 282 percent, or less than the rise in consumer prices described above (College Board, 2011).

66 REFLECTIONS ON PELL June 2013 History, Facts & Policy Recommendations 67 . on state-sponsored student financial aid 2010-2011 on state-sponsored student financial aid 2010-2011 DC: Author academic year. Washington, Washington, DC: Author. Washington, in student aid, 2011. College Board (2011). Trends DC: Author. Washington, & Smith, J. C. (2011). B. D., DeNavas-Malt, C., Proctor, in coverage insurance Income, poverty, and health Census DC: U.S. Washington, the United States: 2010. Bureau. J. (1995). The winner-take-all R. H., & Cook, P. Frank, more Americans compete for society: How more and economic ever fewer and bigger prizes, encouraging and an impoverished cultural waste, income inequality, Free Press. life. New York: E. (2006). Merit aid and college access. Heller, D. of Madison: Wisconsin Center for the Advancement of Wisconsin. Postsecondary Education, U. in the affordability of public E. (2011). Trends Heller, D. of increasing colleges and universities: The contradiction E. Heller prices and increasing enrollment. In D. (Ed.), The states and public higher education policy: 11- Affordability, access, and accountability (2nd edition, Press. 38). Baltimore, MD: The Johns Hopkins University E., & Callender, C. (2010, November). Heller, D. United States and England: aid in the Institutional grant presented at the annual analysis. Paper A comparative conference of the Association for the Study of Higher Education, Indianapolis, IN. & Aid National Association of State Student Grant 42nd annual survey report (2012). NASSGAP Programs. REFERENCES student aid, 2001. in (2001). Trends College Board percent of the Pell Grants awarded to dependent dependent to awarded the Pell Grants of percent in the 2003–2004 students (traditional) college half in the bottom students to went school year going income distribution, with 81 percent the of (Heller, students of 25 percent the poorest to to went 75 percent only grants, state 2006). For quartiles, income two the bottom from students is the best way to help ensure access to and success and success access to ensure help to is the best way of and future generations the current for in college families. financially-needy from students awarded based on financial need criteria. By 2007, By need criteria. based on financial awarded (Heller & 45 percent to had dropped this proportion 2010). Callender, aid, Pell Grants and institutional state to In contrast with financial on students remained focused have 98 that I reported publication, need. In an earlier dollars the half of over institutional grants, and for from students to percent—went awarded—54 the median. families with income above can rely we that trends, it is unlikely recent Given help institutions to and higher education on states had that status grant the foundational supplement in prior BEOG and Pell Grants by been supplied to Pell award the maximum Increasing generations. levels earlier to its purchasing power restore help Institutional grant aid has shown a similar pattern. a similar pattern. aid has shown grant Institutional colleges by provided all grants of percent In 1995, 65 were students undergraduate to and universities financial need, has grown much faster than funding much faster financial need, has grown state of In 2010, 29 percent need-based grants. for of without consideration awarded dollars were grant Student State of Association financial need (National 2012). & Aid Programs, Grant over the last four decades, their targeting is very is decades, their targeting last four the over Until program. the Pell Grant of that from different dollars were grant all state of 90 percent 1992, over as are Pell Grants. based on financial need, awarded awarded grants funding for Since then, however, than rather using academic criteria, the states by provides that solid foundation which would allow would which solid foundation that provides a four-year attend be able to to the poorest students and modest support with little other grant college loan borrowing. student of amounts increased have and institutional grants While state maximum Pell award provided less than 35 percent of less than 35 percent provided Pell award maximum purchasing in the This erosion attendance. the cost of it no longer means that Grant the Pell of power As noted earlier, the maximum BEOG award of BEOG award maximum the earlier, As noted the cost of of percent 80 over covered $1,400 in 1975 decrease The university. a public four-year attending maximumof the value in the real (inflation-adjusted) along with the increase in tuition prices,Pell Grant, the 2009, By Pell. of the purchasing power has eroded college for the current and future generations of of generations and future the current for college families. financially-needy from students Increasing the maximum Pell award to help to award Pell Increasing the maximum is the levels earlier to its purchasing power restore and success in help ensure access to to way best Pell and the Merits of Need-Based Student Aid

As the nation celebrates the 40th anniversary of the Pell Grant Program (Pell) and the legacy of service by its author and namesake, the late Senator Claiborne Pell, we benefit from reflecting on the tremendous merit of need-based student financial aid.

68 REFLECTIONS ON PELL June 2013 History, Facts & Policy Recommendations 69 attend school, even if our stay in any particular town particular town in any if our stay even school, attend short lived. was three school days. for in a town stayed One fall we on the for school; we registered On the first day and grade placement) (for tested we second day if we (even the required health inoculations received school); the previous them at received had already to class. Unable attended we and on the third day, students, Pell validates their aspirations and singular their aspirations Pell validates students, the right to students It affords experiences. life no less are no less meritorious, they that believe in postsecondary education deserving enrollment of more affluent from than are their classmates society. of segments college, to journey me. My true for certainly This was others, could not service a career of to and into Pell. My family it not for been possible were have the in 1969 and for States the United to immigrated from town, to town from moved next nine years, seasonal migrant in search of California, to Texas did not align with farm work. The annual migration an interrupted Therefore, the academic calendar. curricula, and constant different school year, farm workers migrant for common were relocation children the younger that insisted us. My parents like ndoubtedly, Pell has widely expanded Pell has widely ndoubtedly, postsecondary to education access to income low-to-moderate millions of For individual students, and more specifically and more specifically students, individual For grants received have who the 60 million students decades, Pell is very personal. It past four the over the doors unlocking key, their private represents enables Pell a higher education. opportunity to of a lifetime into college through their unique journey an of the pursuit come from opportunities that of these each of high school. For beyond education families from every community of this great nation. nation. great this of community every families from leaders, Pell educational and policymakers For of need-based aid— the classic purpose exemplifies students low-income for affordable making college is It in college. to enroll are otherwisewho qualified public policy. good of the epitome U Pell exemplifies the classic purpose of need- of the classic purpose exemplifies Pell low- for affordable based aid—making college qualified who are otherwise students income good of is the epitome It in college. enroll to public policy. ASSISTANT VICE PRESIDENT VICE ASSISTANT TG JACOB FRAIRE JACOB find work during this three-day period, my parents Inarguably, merit-based aid has a role in higher it would need to appropriate additional funding for went to our school on the fourth day to thank the education. Certainly, academic institutions and student aid. In 1999, the Texas Legislature created the school staff and inform them that we would be private foundations have the prerogative to allocate TEXAS Grant Program, which would later become the moving later that day. resources to advance their respective missions state’s largest student aid program. and priorities. The issue in question is the use of Thankfully, when I began high school our family’s Initially, the grant eligibility criteria were public funds for merit-based aid at the expense migration ended. However, the great gulf of an straightforward; to be eligible, students had to of need-based student aid. In an ideal economic interrupted education and realities of living in graduate from high school with the college-prep world, there would be ample resources for Pell, poverty remained. Then, my luck changed. A little curriculum (Recommended or Distinguished High other need-based aid programs, and for merit- known federal program, the College Assistance School Program) and demonstrate financial need based assistance to bolster specific public priorities, Migrant Program, along with student financial (as reflected on the Free Application for Federal such as the production of more degrees in science, aid grounded in Pell, provided the successful Student Aid). For the number of high school seniors technology, engineering, and mathematics. However, combination of need-based aid and student support at that time who were earning a recommended or as policymakers in Washington, DC and every services that not only made college enrollment distinguished diploma, TEXAS Grant funding was possible, but also forged a viable, meaningful appropriate. However, over the next decade as more Arguably, a policy of exclusion is not good pathway for the journey to and through my students graduated with the requisite diplomas, the public policy and effectively undermines postsecondary education. I received Pell support grant program’s funding could not keep pace with the long-term economic viability of our each of my four years as an undergraduate student. demand. In 2011 at the urging of the Texas Higher state and nation. Education Coordinating Board, the Texas Legislature I share this story to accentuate a reality for countless amended the TEXAS Grant statute to require students whose education is interrupted for reasons institutions to give first priority to those students state capitol know too well, we do not live in ideal beyond their control. Students want to learn. Studies who met the new merit-based criteria. economic times. With the advent of deficit reduction have dispelled the myth that some parents do not measures, the pressure to prioritize funding for some value education. Studies have also affirmed that Under the new law, students must meet two of four areas over others will almost certainly pit need- parents of all income levels have high aspirations new academic criteria: (1) graduate in the top third of based aid against merit aid. for their children and want them to obtain a college their high school class or earn a 3.0 GPA; (2) achieve degree. To suggest any person would purposely a college readiness score on an approved college My home state of Texas illustrates the tension or willingly neglect their own, or their children’s entrance exam; (3) complete college-level courses between need-based and merit aid. Texans are heavily education, demonstrates a lack of comprehension while in high school; and (4) complete an advanced dependent on federal student financial aid to help for the imminent needs of our nation’s poor. Worse, math course. Supporters of the new statute wrote: pay for college. In the academic year of 2010–2011, it reflects an elitist viewpoint that has no place approximately $2.5 billion in Pell and $5.4 billion in This reform is designed to reward financially-needy high in public policy. Still, these are but some of the federal direct loans was awarded to Texas residents. school students who put in the hard work necessary to arguments articulated by those who would advance Earlier, Texas leaders recognized that for the state to achieve college readiness, and to increase the state’s policies to replace need-based aid with merit. advance its college enrollment and completion goals,

70 REFLECTIONS ON PELL June 2013 History, Facts & Policy Recommendations 71 of 1965, it is imperative that our nation’s policy and nation’s our that 1965, it is imperative of legacy and shun any that thought leaders maintain it loses that a way Pell in such “reform” to temptation all students. aid for on need-based focus its hallmark of need-based student financial aid, and for that, for that, financial aid, and need-based student of the look ahead to thankful. As we should all be we Act Education the Higher of next reauthorization need-based aid, I say thank you, Senator Pell. Equally Pell. Equally Senator thank you, need-based aid, I say are those policy-makers, deserving our gratitude of Pell funding support the aisle, who both sides of from The Pell legacy honors the merits year. after year viability of our state and nation. our state viability of be to will continue these students Fortunately, others them, and countless Pell. For eligible for dreams their college pursued tirelessly have who costs and decreasing increasing college of in spite really intend for these students to go deeper into deeper into go to these students for intend really rightfully they education college a for pay debt to accept their willing to really deserve? Are we Arguably, education? higher from exclusion eventual public policy and is not good exclusion a policy of economic undermines the long-term effectively on student loans. The tragedy is that on average, on average, is that loans. The tragedy on student on federal are more dependent already Texans in other states. loans than students educational will lose those who for repercussions The long-term particular concern. Do we aid are of TEXAS Grant do not meet the new academic criteria are effectively are effectively criteria do not meet the new academic the be clear, dollars. To these grant from excluded enroll to ineligible these students does not make law it preclude nor does or university; college in a Texas for their to pay ways finding other from students as increasing their dependency such education, college return on its investment by prioritizing funding toward funding toward prioritizing by investment return on its degrees. their complete to likely most those students academic year in effect takes The new statute retained its need-based The program 2013–2014. who students However, now. least for component—at Dreams Do Come True

MARTHA KANTER

UNDER SECRETARY

U.S. Department of Education

72 REFLECTIONS ON PELL June 2013 History, Facts & Policy Recommendations 73 childhood trauma and abuse. I ran away a few times, a few and abuse. I ran away childhood trauma my senior summer before was the and the final time made that with a family live school to high of year high out of though, I dropped Eventually safe. me feel pregnant. school, became homeless, and got two mother and I reconciled. She worked my Later, in a small living school while jobs so I could attend In 2002, while leading De Anza College in Cupertino, in Cupertino, De Anza College leading In 2002, while for Award the President’s I gave California, Brenna Candelaria. to Distinguished Achievement selected She was recipient. a Pell Grant Brenna was Anza campus the De by review a rigorous after graduation, at On the stage committee. awards family 5,000 students, of the audience Brenna told and administrators, members, friends, faculty, her story. trustees me De Anza has helped “I am a single parent. De I came to learning. Before of love my discover as amazing anything achieve to hoped Anza, I never had graduated family one in my No as an education. Benjamin grandfather, My paternal college. from grew a Mexican-American who Candelaria, was before on farms in Southern California up working He then moved Navy. enlisting and serving in the U.S. in District in San Francisco and worked the Mission to three children as a single his for provide to a factory here from grandmother moved My maternal parent. in the Bay Area. as a child and established roots Italy I grew up in the Bay Area and experienced early presidents can point to thousands of students whose whose students of thousands to can point presidents higher education. by changed were lives I promised myself I would do everything everything do would I myself I promised educational expand to could I possibly students for all, especially for opportunity families. low-income nation’s our from What follows is the story of a young woman who who woman a young of is the story follows What the last 40 over of students millions exemplifies without college to gone not have would who years the Pell Grant. of the support at to Americans can point as most successful Just changed model who or role mentor, least one teacher, and professors college all successful nearly their lives, work at the U.S. Department of Education has been has been Education of Department the U.S. at work access, college increasing student to dedicated the using by and achievement quality, affordability, students, incent to our disposal at change of levers dramatically to states families, institutions and stories more create to all levels at education improve the hardships overcoming students of success, of students economic circumstances, of their of become the graduates, to barriers breaking through can all take we leaders in which and civic employees, this through will lead us well who students pride, of going understand that who students of new century, ensure will carry the responsibility to they forward, and the the next generation, for a quality education next, and the next. Administration would make it a priority to help “the help it a priority to make would Administration higher education, seeking students” 100% of top our it. Since then, could afford who not just those

grant to change the future, not only for my my for the future, not only change to grant t that time, I was a high school teacher and a high school teacher time, I was t that of the Pell firsthand the power saw quickly

college president to serve as Under Secretary serve as Under of to president college do everything I would myself I promised Education, opportunity expand educational could to I possibly our nation’s from students for all, especially for our that confident families. I was low-income A students thousands of but thousands upon students our nation. throughout President when later, 19, 2009, 37 years On June be the first community me to Obama nominated years to come. to years various Members of Congress to to Congress Members of various legislation of the signing mark the course of change would that students millions of for history families in the low-income from On June 23, 1972, Senator Senator 23, 1972, On June with stood Claiborne Pell apartment in San Jose. When my son was 8 months old grades up. She told me this year, “The Pell Grant As my student told me, “The Pell Grant and I was 21, I graduated from an adult high school gave me hope that I could achieve more than being a gave me hope that I could achieve more program and enrolled as a full-time student at De single mom on welfare.” than being a single mom on welfare.” Anza College. I maintained a high GPA because of the Brenna graduated from UCSC with honors and school’s amazing teachers and academic counselors. the help of the $787 billion American Recovery and now works at the University. What would have Reinvestment Act passed on February 13, 2009. But I was diagnosed with learning disabilities and was happened to her and her son if the Pell Grant had President Obama did not simply seek to bolster able to get help from De Anza’s Educational Diagnostic not been available? The Pell Grant program is demand temporarily with short-term tax cuts and Center. I became an editor for the Red Wheelbarrow, essential to enable success for that top 100% of our increased government spending. He simultaneously nation’s students seeking the opportunity to enter invested in building a new foundation for the The Pell Grant program is essential to an accredited college, university or postsecondary American economy. Nowhere can that investment be enable success for that top 100% of our training program. It changes lives. It makes dreams seen more than in education. nation’s students seeking the opportunity come true, and it creates a better America. Nearly one in six in Recovery Act dollars was to enter an accredited college, university or In early 2009, the idea of dramatically growing dedicated to education. The Pell Grant program postsecondary training program. It changes the Pell Grant program seemed naïve to many in saw a $17 billion infusion of funds to help millions lives. It makes dreams come true, and it higher education and beyond. Today, too few seem of unemployed workers and struggling families creates a better America. to remember just how perilous a state our nation’s pay for postsecondary education and training. economy was in when President Obama assumed Moreover, recognizing that Recovery Act funding office in January of that year. More than 500,000 jobs De Anza’s Literature and Art Magazine. I’ve spoken at was only going to be temporary, in 2010 the Obama were being lost each month. The stock market had diversity workshops throughout the community about Administration and Congressional Democrats led fallen over 60 percent the previous four months and being a single parent on welfare going to school. I’m by Representatives George Miller (D-CA) and Tom appeared to be headed further downward. Housing involved in a program called Lifetime, an agency that Harkin (D-IA) advanced a massive change to the prices were down more than 30 percent. Nearly promotes low-income families attaining empowerment federal student loan program that financed an every major financial institution was grappling through education. I volunteer at the Second Harvest additional $40 billion for the Pell Grant program with massive losses, many confronting insolvency. Food Bank. But my main focus continues to be over the next ten years. We shifted needless and Consumer confidence was badly shaken, leading succeeding as a parent and as a student.” very large government subsidies away from lenders to an across-the-board drop in economic demand. and directly helped needy students like Brenna. Brenna transferred from De Anza College to the Gross Domestic Product was falling over 6 percent Subsequent budget negotiations with Congress University of California-Santa Cruz (UCSC). Five a quarter. The country truly faced a looming brought billions more to the Pell Grant program. days a week, she took two different buses with a depression. Pell Grants were not at the top of the 4-year old, stroller, backpack heavy with books, political agenda. Today, 9.6 million students with Pell Grants are and a diaper bag to get to UCSC. Day after day, she enrolled in postsecondary education; that’s 3.6 History will record that the Obama Administration struggled to put food on the table and keep her million more than on the day President Obama took spared this country a depression in large part with

74 REFLECTIONS ON PELL June 2013 History, Facts & Policy Recommendations 75 are even lower. And overall, only nine percent of of nine percent only And overall, lower. are even postsecondary students education first-generation income quartile earn a families in the lowest from is beneficial, 26. Some college age degree by college and financial greater but there are substantially with degree completion. associated personal rewards adults with a young 2006 data, to According more than those bachelor’s degree earn 28 percent back those loans is an important consideration in consideration loans is an important back those 100 every For the program. of the success looking at a public or private from graduated who students three there were in 2007–08, college four-year entered those institutions who of students former three years. within in 2007 and defaulted repayment an associate’s earned who 100 students every For there were college, community a public degree from 100 every For who defaulted. former students five a from or certificate earned a degree who students who were twenty-nine institution, there for-profit the Pell Grant that ensure need to We defaulted. our investment a loss of not lives, successful leads to debt management. of and lives be to want we are where we also whether Consider numbers and rates. completion college of in terms a Pell receives students two one out of almost Today, full- all first-time, of 58 percent only And yet, Grant. attending recipients) (including Pell time students institution earn a bachelor’s degree a four-year two-year For initial enrollment. of within six years numbers the completion students, degree program Most Pell Grant recipients also assume student loans student also assume recipients Most Pell Grant higher without the be much would and these loans can pay Pell recipients Whether program. Pell Grant Most Pell Grant recipients also assume recipients Grant Pell Most be would loans and these loans student program. Grant the Pell without much higher challenges going forward. In fact, over the last 40 In fact, over forward. going challenges three has confronted program the Pell Grant years The first today. are all present and they major threats providing investment Is the Pell Grant is operational. our to our graduates a reasonable return from life? and civic security, prosperity, nation’s you like. And imagine yourself sitting in your favorite favorite sitting in your yourself And imagine like. you filled with seat stadium, sold out, every team’s Now faces in the crowd? cheering fans. See all those kids fans are students, imagine all those cheering high school, middle-agedright out of adults going White students, school, African-American back to Now male and female. students, Latino students, the major league baseball stadium in imagine every in the country stadium NFL football every country, filled every seat Imagine to capacity. sold out, filled a new those students one of and every with a student 3.6 million. That’s recipient. Pell Grant Brenna those 3.6 million are like of many How of the stories will have many Candelaria? How will many How forward? our nation move to success true? come will dreams many How world? the change major still confronts program The Pell Grant number to appreciate. But imagine yourself going going yourself But imagine appreciate. number to or baseball team professional favorite your watch to or whomever Steelers, Sox, Red team—the football is responsible for the largest three-year increase in the largest is responsible for program. the Pell Grant of the history 3.6 million more are now there Most striking is that It’s a hard in three years. recipients Pell Grant headed toward a total of almost $6,000 a year. The almost $6,000 a year. of a total headed toward Congress, of with the support Obama Administration, office—more than a 50 percent increase. Applications Applications increase. percent a 50 than office—more those income group, in the lowest students from are $10,000 a year, less than incomes of with family growth application of the rate twice at increasing almost 10 million for grant The maximum overall. $1,000 higher since 2009, and it’s is nearly students with an associate’s degrees and 50 percent more than In 1980, the maximum Pell Grant covered 77 percent of access and improve college affordability without those with only a high school diploma—a percentage the total cost of attendance for a four-year institution. sharing this responsibility with state and institutions that translates into a million dollars in additional It covered 99 percent of the total cost of attendance at most responsible for the cost of college. earnings over a lifetime. a two-year institution. Today, even after the Obama Administration’s investment, the maximum Pell Grant States have to stop balancing their We have to improve postsecondary completion covers only 29 percent of four-year institution costs budgets on the backs of students. levels. President Obama has set an ambitious goal and 54 percent of two-year college costs. for our nation that, by 2020, the United States will— once again—lead the world in the proportion of 25 Pell Grant funding more than doubled during the The Pell Grant program’s third major challenge is to 34 years olds with a college degree. The Pell Grant first three years of the Obama administration and yet debunking the common misunderstanding of how program must be leveraged to help students reach it also dropped from covering 36 percent of costs at the program helps students afford college. Some public four-year schools to only 29 percent today, from ask whether the presence of a third-party payer for Time and again, research has indicated 69 percent of two-year program costs to 54 percent low-income and working class students--that is, the that the Pell Grant program does not drive today. Why? The rising costs of college (tuition and fee federal government in the form of the Pell Grant tuition and fees upward. In fact, over the growth). It is not fiscally sustainable for the federal program--simply drive tuition and fees higher on government to continue to extend higher education a dollar-for dollar basis for all students, rendering last 40 years, the maximum Pell Grant has increased 23 times, been cut 3, and level funded 14. PELL GRANT MAXIMUM AS A PERCENTAGE OF 2-YEAR AND 4-YEAR PUBLIC COLLEGE COSTS, 1979-2014 that goal by earning their degrees in far greater numbers than this generation has done. Today, forty- 4-YEAR PUBLIC 2-YEAR PUBLIC two percent of Americans hold college degrees. The 10000% 2020 goal would have us reach beyond 60%. College access is critical, but Education Secretary Arne 80% Duncan and I call college completion our guiding 60% North Star. College access is a false promise unless students persist and graduate! 40%

The Pell Grant program’s second major challenge is one of scale. Is the Pell Grant program’s overall 20% funding level sufficient to make higher education 0 accessible and affordable for, in Senator Pell‘s own words, “any student with the talent, desire, and drive 9 9 9 9 2 7

to pursue higher education”? 98 01 19 199 200 1 2

76 REFLECTIONS ON PELL June 2013 History, Facts & Policy Recommendations 77 character of our people.” our people.” of character I couldn’t agree more. The federal government can and should support can and should support government The federal support its aid to It can leverage these efforts. all of It can spur in higher education. investment state higher education among institutions of coordination it when systems and higher education and K-12 and academic standards. It credit transfer comes to new and scaling up of the development can support all, it can and should ensure models. Most of delivery to indexed program Grant a stable, predictable Pell mercy of the Price Index and not at the Consumer political cycles. and annual budget dreams come true. does make program The Pell Grant cannot program the Pell Grant forward, But going and families, students do so alone. States, to continue government and the federal and universities, colleges access, college improve do their part to each must a shared responsibility. It’s and quality. affordability, Pell as Senator For, duty. In fact, it’s our patriotic lies not our nation “the real strength of say, would of or in our weapons Knox Fort in in all the gold and education total mass destruction, but in the sum programs in place, while others are guaranteeing others are guaranteeing in place, while programs the entire the full cost of and families students entry. upon degree program award of competency-based degrees, and other competency-based of award those like programs practices. Innovative innovative Academic for Center the National by championed 200 colleges with over working now Transformation, student impressive are achieving and universities, Some cost. per-student a lower at learning outcomes degree pioneering institutions are putting 3-year time, first-time students complete college in six years in six college complete students time, first-time We challenges. our national adding to on average, long. and it’s taking too students many lose too enter students of percentages more, large What’s take to underprepared and have higher education far too or remedial courses that developmental a postsecondary degree. Worse, do not lead to often of choose institutions consumers under-informed for poor fit are a that or programs higher education with very high costs and combine very their talents need to returns. We poor economic, social or civic high school academic preparation, of raise the rigor their secondary take school studies to students get the return on investment and make more seriously, and widely more transparent much information choose among can wisely so families available postsecondary and training options. education also themselves higher education Institutions of We their productivity. improve can and need to see more and more cutting-edge are beginning to models that servicehigher education delivery embrace blended online learning, dual enrollment, college price significantly for students, families, and families, for students, price significantly college the Pell Grant them through subsidize who taxpayers full- of half only means. Further, and other program complete postsecondary education with greater postsecondary with greater education complete to for students it easier we make If efficiency. and colleges two- between transfer and four-year without the loss quality institutions among good could reduce cumulative academic credit, we of Our higher education system does not do enough system Our higher education education. a college of on-time completion foster to bachelor’s degree student average the Today, years instead his or her degree in five completes students help to bolder steps take must We four. of States have to stop balancing their budgets on the balancing their budgets stop to have States of other drivers But there are students. backs of families. price for higher education years, the maximum Pell Grant has increased 23 Pell Grant the maximum years, funded 14. And yet and level times, been cut three, tuition and college those 40 years, one of in every behind rising The main driver up. gone have fees and universities colleges public at tuition and fees higher education. funding for is reductions in state the program meaningless for its recipients and its recipients for meaningless the program all? for counterproductive research has Time and again, is no. The answer does not drive program the Pell Grant that indicated the last 40 In fact, over upward. tuition and fees of mass destruction, but in the sum total in the sum total but mass destruction, of people.” our of and character education In fact, it’s our patriotic duty. For as Senator Pell Pell as Senator For duty. patriotic our it’s In fact, lies nation our of strength “The real say, would weapons in our or Knox in Fort the gold in all not THE FEDERAL PELL GRANT PROGRAM: ell Grants average about $3600 and help need for students from the very lowest income badly students pay tuition and fees, room and board, overstates their ability to pay. books and supplies, and other living costs Alternative P To address these challenges the current maximum Pell while attending college. National averages for these Grant of $5500 should be raised to about $12,000 to costs were $14,600 at community colleges, $20,300 at Futures cover the same share of institutional charges of tuition, public 4-year universities, and $40,500 at private 4-year colleges and universities in 2010–11. Pell Grants are the foundation of financial aid packages for the students The Pell Grant program is in urgent need The Pell Grant program that need the most financial aid to attend college. of expansion to effectively serve the provides need-based financial rapidly growing population of low-income The Pell Grant program costs about $28 billion per students seeking higher education. The aid grants to 8.2 million year. This is a very big item among the domestic costs of doing so should not add to the undergraduate college students programs of the federal budget. Because of the federal budget deficit. from low- and lower-middle- federal budget deficit and the program’s costs, it is under considerable critical pressure for reduced income families. funding. The Obama Administration and Republicans fees, room and board that were covered in the late in Congress are both advancing proposals to curtail 1970s. The needs analysis formula should be corrected the cost of this program and the resources this to recognize the bread-winner role students from very TOM MORTENSON program provides to students from low- and lower- low income families provide for their families. middle-income families. They are both wrong. SENIOR SCHOLAR The substantial resources needed to pay for these The Pell Institute for the Study The Pell Grant program is in urgent need of long overdue changes should come from two places: of Opportunity in Higher Education expansion to effectively serve the rapidly-growing the states and the resources currently used by the population of low-income students seeking higher federal tuition tax credits. The states have produced education. The costs of doing so should not add the quadrupling of tuition and fees charges that have to the federal budget deficit. The needs of the Pell occurred in public institutions since 1980. Persistent, Grant program are clear: (a) the low income share pervasive and enormous reductions in state fiscal of K-12 enrollments is growing rapidly and is now effort to support public higher education have forced over half of America’s school children approaching public colleges and universities to increase tuition college age, (b) the economy of the United States has charges to students and their families. The states been producing jobs mainly for workers with college need to re-engage in making college affordable for training since the early 1970s and losing jobs for their own citizens. The funding to increase the Pell those with high school educations or less, (c) college Grant maximum award should be drawn from the costs have risen much faster than has the maximum states on a dollar-for-dollar matching basis—not allowable grant for the neediest students, and (d) exclusively from federal funds. the federal formula used to determine financial

78 REFLECTIONS ON PELL June 2013 History, Facts & Policy Recommendations 79 Restoring Pell Grants requires resources. These Pell Grants Restoring the long-absent by states, resources should be provided in federal and the redirection the funds consumed be directed funds must tax credits. Limited education need them and not toward clearly those who toward needy. are not financially those who Cutting the Pell Grant program diminishes our future. program Cutting the Pell Grant for three decades. Yet the low-income population is population the low-income three decades. Yet for needs economy capital human the and rapidly, growing prosper. the country to labors for their productive of family income—above $106,000--complete a income—above family of about to compares 24. This age bachelor’s degree by family quartile of the bottom from students 8% of 10 times, is a gap of $36,000. That income—below The true years ago. times 30 five a gap of to compared been ignored have program the Pell Grant needs of attendance costs than do these tax credits. There is costs than do these attendance be used as tax credits can only and they no needs test, need miss those who So they taxes. pay who those for costs. attendance college to pay financial aid the most quartile the top from students about 83% of Currently The second source for funding needed improvements improvements funding needed source for The second tax credits for is the federal program the Pell Grant to about total tax credits now These enrollment. college America Foundation. the New according to $17 billion, meet so poorly financial aid programs Few college to pay financial need student demonstrated currently used by the federal tuition tax credits. tuition tax the federal used by currently The substantial resources needed to pay for for pay to resources needed The substantial come changes should overdue these long and the resources places: the states two from Indeed, what truly is unsustainable is the What Truly is yawning gap between who gets a college Unsustainable education in this country and who doesn’t. in educational attainment without honestly addressing the fact that low-income young people Every time I hear otherwise intelligent are earning degrees at one-seventh the rate—and Black, Latino, and American Indian students at one- people say, “the Pell Grant is unsustainable,” third to one-half the rate—of their high income and/ I want to stick pencils in my eyes. or White counterparts.

That’s what’s unsustainable, given the changing demography of this country. And it’s what all of us understand, of course, that annual expenditures ought to be working to fix. KATI HAYCOCK on the program have grown enormously in recent years. And I get that, while costs are CURRENT DYNAMICS UNDERMINE PRESIDENT I AMERICAN PRINCIPLES Education Trust projected to remain relatively stable for the remainder of this decade, the relentless upward march of college We don’t have a minute to lose. These patterns are costs means that, to keep pace, the program would not just undermining economic growth, they’re have to grow in the decades to come. threatening the principles we hold dear.

But you’ve got to wonder: Nobody ever says the costs As Americans, we tell each other—and the world— of the tax credits and deductions that help middle- two powerful stories about our country. and upper-middle-class students are “unsustainable.” Nobody ever says the tax programs that support The first is that we are the land of opportunity: No building programs on private college campuses are matter whether your parents came here from India “unsustainable.” Nobody even says the enormous and or you grew up in the hollers of West Virginia, if you growing costs of incarcerating so many of the young work hard, you can become anything you want to be. people we fail to educate well are “unsustainable.” The second is a story of generational advancement: Indeed, what truly is unsustainable is the yawning Through saving and hard work, each generation of gap between who gets a college education in this parents can secure a better education—and a better country and who doesn’t. That hardly gets talked future—for their children. about at all. Instead, we pretend that we can These stories are powerful. They are pervasive. But somehow return to our position of global leadership they are no longer true.

80 REFLECTIONS ON PELL June 2013 History, Facts & Policy Recommendations 81 But that starts not with the rallying cry “Pell “Pell cry with the rallying not starts that But action to with a call but is unsustainable,” restore it takes to whatever doing around late. it is too America before in opportunity foremost, to students who can’t attend without help. without help. can’t attend who students to foremost, cry with the rallying “Pell is starts not But that action around call to but with a unsustainable,” in opportunity restore to it takes doing whatever late. it is too America before Instead, the fashionable thing to say is, “Pell is is, “Pell is say thing to the fashionable Instead, unsustainable.” trim $56 billion to ways has found Congress Already, Not the next 10 years. over Pell allocations from to figure working folks are still there, to rest satisfied trim the program. to more ways out even motivation. can’t be our driving Cutting simply increasing the radically aim at to got we’ve Instead, color of and students students low-income number of might fix certain reforms degrees. Yes, earning college and enhance the likelihood wrinkles in the program but actually just start college, won’t Pell students that consider be insane not to would And we graduate. states encourage to leverage use federal to ways direct their resources, first and and institutions to all, more than 9 million low-income Americans are Americans 9 million low-income all, more than their education. further on Pell to relying …We’ve got to aim at radically increasing increasing radically aim at to got …We’ve and students low-income of the number degrees. earning college color of students policies to turn this situation around. Shoring up the around. turn this situation policies to our priority list. After of the top be at would Pell Grant one thing they can never take away from you.” from away take never can one thing they critical. As one is especially Higher education have those who concluded, “Among study recent there is no racial of college, years four finished and Blacks Both Whites gap in economic mobility. experience very high rates.” A PERFECT STORM know color of and students students Low-income need a they know and their parents this. Both they education a college for aspirations education; college been higher. never have means are facing a perfect with limited But students The Pell Grant’s is skyrocketing. Tuition storm. is plummeting. And both states purchasing power dollars away grant are shifting their and colleges need them the most and who the students from go to who can afford students more affluent toward without help. college to here policymakers country, a rational were If we fashioning work be hard at would in Washington But at the individual level, better education is indeed education better level, the individual But at African-American of generations As the main answer. the is children, “Education their told have parents

developed world… developed The U.S. now has one of the lowest the lowest has one of now The U.S. in the mobility intergenerational of rates ANSWER, BUT A BIG PART ANSWER, BUT A BIG and more equal better course, of level, the macro At There are a lot answer. is not the only education public policy can (and enlightened things that of should) do. intergenerational mobility in the developed world, world, mobility in the developed intergenerational Indeed, it’s now and Nepal. on par with Pakistan that time in the past 50 years any than at more likely die poor. you’ll born poor in America if you’re THE ONLY — NOT EDUCATION declined by 53 percent and 66 percent respectively, respectively, and 66 percent 53 percent declined by among whites. 16 percent a decline of to compared economic inequality. And it’s not just worsening mobility has fallen, Since 1980, intergenerational of rates the lowest has one of now The U.S. as well. worse in the last several years, which have brought brought have which years, in the last several worse Black and Latino to economic tsunami a veritable has wealth median household families—whose Among OECD nations, the U.S. has the fourth highest has the fourth the U.S. Among OECD nations, much gotten And things have income inequality. As a new round of cross-national studies is cross-national of As a new round the one of is now States United us, the showing amongst all developed unequal most economically takes now Americans of 1 percent The top countries. the bottom income; while total of home 18.2 percent percent. 12.5 home only takes collectively 40 percent Reflections on the 40 Years of the Pell Grant Program

Most people are surprised when I tell them that only 10 percent of Americans held bachelor’s degrees in 1965, when the Higher Education Act was passed.

FREEMAN A. HRABOWSKI, III

PRESIDENT

University of Maryland-Baltimore County

82 REFLECTIONS ON PELL June 2013 History, Facts & Policy Recommendations 83 of race, they often face challenges similar to those similar to face challenges often race, they of the faced over minorities have underrepresented in educating are successful Institutions that years. to about how thought carefully have these students support but also academic financial only not provide and examine need to Colleges and emotional support. as possible understand as much in order to use the data For students. of and other groups about Pell recipients same proportions as non-Pell students. Their high Their as non-Pell students. same proportions non-Pell students those of are similar to school GPAs as as well nearly perform and they enter, they when earning GPAs in their first semester, non-Pell students similar also have They lower. slightly are only that in their early as non-Pell students rates retention our new freshmen who careers. However, college than less likely are slightly recipients are Pell Grant with the in six years, graduate to non-Pell students the third year. becoming clear in in retention off drop financial need. About to related is often off This drop and we are White, recipients our Pell Grant a third of For are overrepresented. minority students see that account though African-American students example, our new freshmen, they of about 12 percent for the new freshmen of more than 20 percent represent is similar among African- The trend with Pell Grants. about 20 constitute who students, American transfer but almost a third population, the transfer of percent group. in that the Pell recipients of of their are the first members Pell recipients Many and, regardless college, from graduate families to Pell Grants. In significant ways, these Pell recipients these Pell ways, In significant Pell Grants. They population. the student of the rest to are similar the all disciplines in virtually majors across complete It is hard to believe in what we have not seen not we have what in believe to is hard It remember and so I especially in the past, became families working these excited how Grant the Pell learned about when they hope. of a symbol was because it social and economic progress. social and economic progress. American on Grants Pell of impact the on reflect we As the future, it’s critical that look to and as we society, the lessons learned about the students document we At support. Pell Grant of served as a result have we incoming freshmen of UMBC, more than 20 percent receive students transfer and more than a third of that they may still have doubts about the possibility. about the possibility. doubts still have may they that not seen in have we in what believe It is hard to excited remember how the past, and so I especially learned they when families became these working hope. of a symbol was it because about the Pell Grant low-income many today, like much ago, years Forty loans and of frightened families were and working a stable offered Pell program taking on new debt. The to (and continues freed them funding that source of burden. Its of that portion a significant do so) from a clear has sent existence and continued creation the nation families that low-income to message a chance to have them to for considers it important their dreams. The stability and pursue college to go our nation’s to directly has contributed it has created they thought about the possibility. Even today, many many today, Even the possibility. thought about they in their family seen anyone never have Americans it’s understandable and so college, from graduate

’60s in Birmingham, Alabama, as the’60s in Birmingham, Alabama, African-American teachers, son of hen I was growing up in the ’50s and growing hen I was

I will always remember my parents constantly talking constantly parents remember my I will always of with neighbors and friends about the importance I also remember the college. sending their children to when parents so many doubt on the faces of look of parts of the country, did not see college as a possibility see college did not the country, parts of or their children, concluding simply, themselves for the Pell Grant of it.” The creation can’t afford “We this in countering instrumental in 1972 was program all more people of many perception and convincing a possibility. was college races that decision had really not been implemented 10 years implemented not been decision had really been not have would certainly We state. in our later African-Americans of about 4 percent only that aware that however, did know, We graduates. college were Most college. to gone our neighbors hadn’t most of Birmingham, as in other families in Black and White but we knew that our teachers, our principal, and our teachers, knew that but we in the and lawyers doctors Negro the handful of much Through graduates. all college were community concern in our community the greatest period, that of desegregation school Court Supreme 1954 the that was my friends and I rarely thought about that statistic, thought about that friends and I rarely my W example, are these students part- or full-time, what’s perceives as judgmental, not realizing how bad it We consider our institutional culture to be reflected the strength of their academic preparation, and did makes her feel. A single mother returning to college in every aspect of campus life, guiding the questions they begin their studies at the institution or transfer in related how she felt that she was being treated like we ask (and those we don’t ask), the achievements after beginning at 2- or 4-year institutions? The more a child, because of the way certain information we measure and highlight (and those we ignore), and we know about these students, the more effective we was requested of her, or because faculty members the initiatives we support (or don’t support). It has can be in helping them to succeed. assumed in some cases that she was not telling the been my experience that institutions that care deeply truth. It has been very useful to hear those stories about students will take the time to get to know Just as we should avoid making generalizations as we’ve worked to sensitize colleagues about the as much as possible about their backgrounds—— about students from racial or ethnic groups, we need to remember that students come from unique not only academic, but also the cultural context must be very careful not to generalize about Pell backgrounds—with different family circumstances from which they come, involving such factors recipients. Their circumstances vary dramatically. and income levels, and from different age groups— as geography, race, and religion. Over the years, Is the student from a family in which English is not and also that these and other factors must be taken we have come to appreciate how important it is the first language? Is the student from an urban or into account when thinking about how to interact for institutions to understand the perceptions of rural area? Does the student have parents who are respectfully with everyone in our community. The students from these different backgrounds. supportive of the college experience? Is the student from a community that supports education or one Culture change at UMBC started most notably with In many cases, Pell Grant recipients that questions the value of college? And how has the development in 1989 of the Meyerhoff Scholars represent groups that need special the student reacted to the media’s heavy emphasis Program for underrepresented minority students in understanding and support if institutions on debt? In some cases, students appreciate that the science, technology, engineering, and mathematics problem is being highlighted, while in other cases they are to be effective in educating them and (STEM). The program, which has been recognized as begin questioning the need for college because of their closing the achievement gap. Hearing a national model for preparing research scientists concern about what they will do once they graduate. their stories can provide useful information and engineers, provides students with financial, about how we can shape, and reshape, the academic, and social support while encouraging My colleagues and I have found it helpful to listen culture of the institution—our values, our collaboration, close relationships with faculty, carefully to the voices of students of all types as we’ve practices, the language that we use. and immersion in research. It has also served focused on effective student retention strategies. as a catalyst for change across campus, leading For example, at campus leadership retreats, we to special scholars programs for high-achieving message is that no one way works for all students. In have included first-generation students of all races undergraduates of all races in the arts, humanities, many cases, Pell Grant recipients represent groups in panel discussions on diversity. Campus leaders— public affairs, and STEM teaching. that need special understanding and support if faculty, staff, and students—have talked with these institutions are to be effective in educating them and students after hearing from them about the ways in The programs and support structures that are helping closing the achievement gap. Hearing their stories which they have felt discriminated against or been many students succeed academically at UMBC can provide useful information about how we can made to feel different. One young woman said that are also benefiting Pell recipients, particularly by shape, and reshape, the culture of the institution— when she mentions to other students she arrived creating environments that embrace differences our values, our practices, the language that we use. by bus, students sometimes look at her in a way she among students. Students who avail themselves of

84 REFLECTIONS ON PELL June 2013 History, Facts & Policy Recommendations 85 increasing the number and range of people pursuing people pursuing of increasing the number and range our knowing degrees. By college and completing confronting the challenges and particularly students, more families much giving and by Pell recipients, about financial aid options and career information colleges graduates, college opportunities for making continue will be able to and universities this goal. to contributions important The past four decades have in many ways been an ways in many have decades The past four has as the nation in higher education, experiment on all types—based families of more encouraged in participate level—to and income race, ethnicity, learn as still must (One lesson we higher education. using best practices of a country is the importance forms and financial aid families complete in helping costs and debt in college understand more about public/ institution—e.g., the type of to relationship in-state/out-of-state—and independent/for-profit, the families.) The nation resources of of the level with the this year earlier reached a milestone Americans with bachelor’s degrees of percentage this the first time. However, for reaching 30 percent other countries a time when comes at achievement their educating in States are outpacing the United 25 and of the ages between Americans citizens: while in earning bachelor’s Norwegians 64 are behind only 34 rank Americans 25 to degrees, (or equivalent) moving with other countries 12th internationally To education. of level us in reaching this ahead of continue America will need to competitive, stay young people taking this step. Starting in the ’60s and Starting this step. people taking young families other and children from siblings ’70s, many those first graduates. of success the inspired by were first generation. The history of the American the of The history generation. first and families of middle class is the story taking this step. people young The point we make is that there is somethingmake is that we The point being in the or first being the noble about of succeeding themselves. The point we make is make we The point themselves. succeeding of about being the first there is something noble that of the The history generation. or being in the first families and of American middle class is the story Leadership, Excellence, and Success), an organization an organization and Success), Excellence, Leadership, for men with opportunities young provides that service-learning, and professional mentorship, numbers of includes large which The group, growth. from primarily transferred have who Pell recipients emphasis places a particular colleges, community and leadership develop male students on helping self-image. skills, and a positive communication incoming of ask groups to it helpful found have We the first in their among them are who students are reluctant often Students college. attend families to is that I make hands, but the point raise their to people in this country the most successful of many tell them I graduates. college are first-generation an Ivy League medical school the dean of about how to college, go to the first in his family was me he told similar me of told have presidents college and how hear about When these students backgrounds. for them the possibility it reaffirms successes, such students, students from low-income backgrounds, backgrounds, low-income from students students, disabilities. The University with and students (Men Achieving MALES of a chapter started recently UMBC has an active McNair Scholars Program focused Scholars Program McNair UMBC has an active and first-generation low-income of on the success graduate attend planning to students college Services Support program school, and the Student career counseling, and tutoring, advising, offers college first-generation for support of other forms NSF-sponsored programs focused on strengthening focused NSF-sponsored programs schools. The and learning in challenging teaching these outreach activities from derived have lessons we aspects important of the development informed have emphasize that undergraduates for programs of along with social and academic support. mentoring, University decided two decades ago to put even more put even to decades ago decided two University low-income for outreach activities on K-12 emphasis first- for the Choice Program creating students, for Bound programs Upward two time offenders, and several students, college first-generation potential In general, Pell recipients at UMBC are performing at Pell recipients In general, as their peers. One reason is that similar levels at to our institution made a decision some time ago the academic have all types who of students identify the same time, the At succeed. skills necessary to sense of self in relation to his or her tenure at the at his or her tenure to self in relation sense of are who Pell recipients that noted have institution. We than full- struggles greater have students part-time do they that is explanation One likely time students. and the programs of advantage take time to not have other students. for so useful proven services have that these programs and support structures become more structures become support and these programs have to tend institution and with the affiliated closely their Pell status. regardless of rates, higher graduation andby grades defined not only should be Success the extent but also by rates, and graduation retention and positive a strong develops a student which to TO RESTORE PELL GRANTS IN PRISON IS TO RESTORE MY FATHER’S VISION OF Educational Opportunities for All

In 1972, Congress took a substantial step toward opening up the doors of higher education for all by establishing for this population to overcome employment and the Basic Education Opportunity reintegration obstacles upon release. Grant, now known as the Pell Grant. When incarcerated people earn undergraduate and graduate degrees the likelihood that they return to prison drops dramatically, which is not only good for them but good for society. Why not

he man behind this legislation was my make accessibility to higher education in prison DALLAS PELL father, the late U.S. Senator Claiborne Pell, a no-brainer? Reinstating Pell Grant accessibility who championed the cause of educational significantly reduces recidivism rates. The United DAUGHTER OF SENATOR T CLAIBORNE PELL opportunity for all, regardless of one’s ability to States incarcerates more people than any other afford it. By 1994, Congress eliminated access to Pell nation, at 2.3 million people. Some 750,000 people Grants to those in prisons. In an era where our public are released from prison every year. Nearly 68% schools crumble and the cost of a higher education of those released are re-arrested within three continues to rise, Pell Grant access for incarcerated years, and more than half of them return to prison. individuals is needed now, more than ever. Incarcerated people who complete college courses while in prison improve their academic and personal As we celebrate the 40th anniversary of Pell Grants, skills—critical tools necessary to secure gainful we must recognize that denying incarcerated employment after release. The U.S. Department of individuals access to these grants has a devastating Justice agrees, calling prison-based education “the effect on their ability to successfully reintegrate single most effective tool for lowering recidivism.” into their communities. Within three years of the Pell Grant removal, the number of higher education The numbers speak for themselves. programs in prisons dropped from 350 to eight If a person has earned a bachelor’s degree while nationwide. Denying higher education opportunities in prison, the likelihood that s/he will recidivate is while in prison makes it significantly more difficult reduced to 5.6%. Furthermore, for people who earn a

86 REFLECTIONS ON PELL June 2013 History, Facts & Policy Recommendations 87 …denying incarcerated individuals access incarcerated …denying effect on has a devastating grants these to into reintegrate successfully to ability their communities. their once said, “The strength of the U.S. is not the gold is not the gold once said, “The the U.S. strength of that mass destruction of or the weapons Ft. Knox at and the the education of total but the sum have, we our people.” of character a losing proposition. a losing proposition. legacy and father’s honors my Congress I hope that gain a Americans incarcerated millions of helps the American dream by living second chance at the of in prisons. This is the goal Pell Grants restoring which of (EIO) Coalition, the Inside Out from Education The EIO coalition is a nonpartisan I am a member. remove mission is to whose advocates of collaborative facing people in prison. higher education barriers to and advocates policymakers The coalition educates Pell of in policies, including the restoration change for individuals. incarcerated eligibility for Grant the EIO of the work to committed I am strongly is to father’s, my coalition as EIO’s vision, like all. My father opportunities for educational provide prison returns $2 to the public in corrections savings. corrections savings. in public the to returns $2 prison for proposition is a winning Pell Grants Restoring is people in prison to these grants denying taxpayers; 50 percent of incarcerated people have children, people have incarcerated of 50 percent in postsecondary participate parents and when to their children will go that the likelihood education, more opportunities for increases. This creates college poverty. climb out of to generations multiple Department the U.S. by a 1997 study to According in on higher education dollar spent every Justice, of lack the capacity to provide them with employment them with employment provide lack the capacity to incarcerated or reentry assistance. Without this help, tools the essential people are released absent society. into reintegration a successful needed for prospects, also increases employment Restoration people, of this group for reducing poverty thereby required for is increasingly as a higher education More than wage. more than a living pay jobs that strengthens underserved communities, underserved strengthens people are most incarcerated as formerly that communities released into often with them provide to lack the capacity assistance. reentry or employment Pell Grant restoration to prisoners to restoration Grant Pell Pell Grant restoration to prisoners strengthens prisoners strengthens to restoration Pell Grant incarcerated as formerly underserved communities, that communities released into people are most often master’s degree, the average recidivism rate is below rate recidivism degree, the average master’s Sing Sing’s1 percent. security men’s (a maximum among the is zero rate NY) recidivism prison in upstate college from graduated have men who hundreds of

History, Facts & Policy Recommendations 89 beginning in 1958, and the GI Bill grant program program beginning in 1958, and the GI Bill grant middle- to paths II, all as investment War World after living. class standards of there issues, of DC cauldron Within the Washington, the 18-year- of bipartisan welcoming important was extend to ways in pragmatic interests and old vote including the Health, Education opportunity, education state and federal elections, laying the basis for the basis for the elections, laying federal and state in local and national vote” “youth first nationwide the same time, against the elections in 1972. At state and national the Vietnam War, of background included advocates organizations student university on strategies and legislative both demonstration of arena, advocacy In the education issues. of a range equality in what educational included women’s college- became Title IX in 1972, first-generation minority opportunity including for educational going going in financial aid roles and federal populations Defense National Sputnik-spurred the back to programs loans, work-study grants, Act Education

his year is also the 150th Anniversary of of is also the 150th Anniversary his year 1862, which of Act the Morrill Land Grant in partnering with roles established Federal Competitivenes PELL GRANTS AS BUILDING BLOCKS OF AMERICA’S AMERICA’S OF BLOCKS BUILDING AS GRANTS PELL World and Opportunity indebtedness reduction proposals and community and community reduction proposals indebtedness networks. area economic development college UNIVERSITY STUDENT LEADERSHIP TO IN FEDERAL FINANCIAL ACCESS 1971–1972 EDUCATION, POSTSECONDARY the US to 1971, the 26th Amendment 1, On July both 18 for to age the voting lowered Constitution It is fit to celebrate the 40th to celebrate It is fit the Pell Grants of Anniversary in 2012. as research and teaching, higher education in states services economic opportunity of as community well and manufacturing agricultural, mining through through 20th Century and in the industrialization, in colleges and community “extension” university in the nation. community every and proposal In 2012, Pell inspired initiatives for similar financial opportunities provide to work student including the Dream Act, generation, today’s T ATTORNEY Chicago, IL LAYTON OLSON LAYTON and Welfare leadership of the Nixon Administration. the 1972 spring break after the House-Senate With NSEF’s network of state and other public and The Pell Grant program arose from Senate bipartisan conference narrowly adopted the BEOG program private college student associations (including in work of Sen. Pell, Sen. Javits, and others, working with over the objection of House Democratic committee California, New York, Virginia, Colorado, Oregon, Administration leaders and seeking to bring together leadership. I clearly remember a several-week Massachusetts, Texas, Pennsylvania, New Jersey, Democratic and Republican House members. period of tense communication by national and state Illinois, Georgia, Maryland, and DC), a couple dozen student networks to “hold the votes” of several House young writers were commissioned to document Based on my experience as an attorney in economic conference committee members with large public practical information needed for students to invest opportunity programs in Chicago and through and private university constituencies. their time wisely in academic programs and to University of California networks, I helped lead the receive financial aid and counseling. Models included recently-organized National Student Lobby (NSL), CONSUMERISM AND STRUCTURING PELL GRANTS student-produced financial aid handbooks in English which stated in its name its platform for working IN FEDERAL FINANCIAL AID PROGRAMS, 1973–1976 and Spanish distributed by the California Student Aid with Members of Congress and their staff on The annual funding dynamics for the startup of Commission. Many “better financial aid information” legislative issues. In building its identity in Congress, Pell Grants ($122 million in first year) and other recommendations were included in Student it gained strong support in the U.S. Senate for a federal student grant, work-study and educational Consumer Information Amendments in Education resolution supporting Student Trustees for Colleges opportunity programs (TRIO programs for first- Amendments of 1976. During these Pell Grant startup and Universities, including support from Senators generation college-going students) depended on years, national student organizations strengthened who themselves had served in such roles in their keeping down federal expenditures for guarantee relations with broad-based “full funding” efforts of youth. NSL strengthened its representation through payments to banks for defaults on student loans, in K-12 and higher education associations, unions and regular legislative reports to more than 3,000 college both colleges and in proprietary technical schools, special education programs, including working with student government associations. A core group which were also increasing. The federal “student college-based financial aid programs, College Board, received expenses, and many volunteer students consumer” model supported “good choices” by ACT and educational opportunity associations. came to Washington, D.C. and stayed in supported students about entering college or training options housing, thanks to a couple of benefactors. having success in graduation, getting jobs and paying FORMALIZATION OF STUDENT CONSTITUENCIES TO IMPROVE FEDERAL, STATE AND CAMPUS-BASED While many in the higher education community down indebtedness. The Education Amendments FINANCIAL AID ADMINISTRATION, 1977–1980 advocated the adoption of the Basic Grant program, of 1972 set up a Fund for the Improvement of Beginning in 1977, along with a push to create the there was division among higher education Postsecondary Education which included a Better U.S .Department of Education, U.S. Commissioner of associations which sought to expand college- Information for Student Choice innovation program, Education Ernest Boyer created a Student Liaison administered grants rather than widen the eligibility under which the National Student Educational Fund office and hosted several Student-Commissioner pool to persons attending trade and technical received multi-year funding for its Information Conferences focused on “students helping students” schools. State student organizations had traditionally Gap Project to identify information needs and best improve federal and campus student aid programs been in favor of no or low tuition at the state or practices to assist students of many kinds, including involving a cross-section of the nation’s student local level, rather than raising tuition and adding full- and part time students, on entering programs, leadership. In a FIPSE-supported project, NSEF financial aid for some. Crunch time came during receiving financial aid and counseling. sponsored a nationwide competition to recognize the

90 REFLECTIONS ON PELL June 2013 History, Facts & Policy Recommendations 91 Proposals for use of public benefits, including public benefits, use of for Proposals small for training and benefits unemployment in which in an age programs, business enterprise benefit applicants unemployment half of nearly business activities, part-time in are engaged them web-based of services,many and libraries, digital of integration for Proposals all as means to access for and Internet textbook business and civic family, individual, improve and lessen costs in health care productivity the highest provide which and public safety, and societal savings individual opportunities for improvements. living and standard of support networks, including those linked with U.S. with U.S. those linked including networks, support state and USDA SBA, Commerce, of Department initiatives; economic development and broadband } } and community networks by earning their way earning their way by networks and community service and school via work, community through education off pay should also be able to They grants. of 10 years to within seven if any, indebtedness, on family, take are able to they so that completion business and career responsibilities. } } andincrease digital literacy to initiatives In particular, increase to the potential have connectivity Internet The education. the costs of access and lower college be a building is to today Pell Grants for challenge enable to opportunity system block in an integrated four-year college, community of the next generation and training program certification and private college skills, join career measurable achieve to participants

(see Illinois DREAM Act (see Illinois DREAM Act service programs; skill and college community Expansion of vocational Act and Perkins programs certification job demand; training tied to area-based college community Expansion of and small enterprise economic development Public understanding of Pell Grants as a core Pell Grants of Public understanding and a higher education access to of element middle-class living; standard of loans, on student rates interest of The lowering loan programs student of based on consolidation in 2009, along with public discussion about rates; interest affordable continuing access DREAM Act and state federal for Proposals education higher to http://www.isac.org/home/illinois-dream-act.html); Student of expansion significant for Proposals and Earn Tuition Reduction Loan Indebtedness public of a number opportunities through } } } } } } } } Today’s fiscal constraints, demographics of an of demographics fiscal constraints, Today’s skill training and and needs for aging population, challenges careers present throughout certification human mobility in the basic social investment to a in society as a whole of as in productivity as well initiatives, Several economic environment. world address these challenges: however, } } } } OPPORTUNITIES TO STRENGTHEN STRENGTHEN TO OPPORTUNITIES FINANCIAL AND OTHER PELL GRANT EDUCATION HIGHER TO ACCESS This period saw expansion of regular involvement of of regular involvement expansion of This period saw careers in financial leader “alumni” entering student and state campus, at aid and loan administration higher education as staff of as well levels, national kinds. many of and projects associations During this period, the National Student Association Association Student During this period, the National the create to Lobby Student National with merged as a today continues which Association, Student U.S. of administration and good funding for lead advocate (www.usstudents.org). financial aid programs federal Student leaders participated in the Frank Keppel Keppel in the Frank leaders participated Student communication electronic merge to Commission aid and campus-based financial among Pell Grants systems. Board and ACT College by administered best student-produced information for other students other students for information best student-produced winners coming to with students, and potential counseling, included academic, initiatives Such D.C. then- including and career information, financial aid aid and financial new “online” career information models. information career and community networks by earning by networks and community career community work, via school through way their service and grants. private certification and training program program and training certification private skills, join measurable achieve to attenders a building block in an integrated opportunity opportunity integrated in an block a building of generation enable the next to system and college four-year college, community The challenge for Pell Grants today is to be is to today Grants Pell The challenge for SENATOR PELL AND SENATOR FULBRIGHT: enator Pell’s name appeared as soon as I have been Nobel Prize winners, 10 have been elected became interested in an abiding topic of to Congress, and 18 have been Heads of State. mine: how to offer the opportunity of higher Personal S Indeed, the work of both Senators Pell and Fulbright education to those in straitened circumstances; how has been concerned with creating a world in which to open the doors of postsecondary education to those Connections knowledge and skills are better utilized. The Fulbright whose families could afford to pay little or nothing scholarships are granted to American citizens who towards the costs. The Pell Grant carried a resonance pursue their study abroad, and to non-U.S. citizens who that, like the Fulbright Scholar, inspired respect. The study in the U.S. Universities throughout the world are My reflections about the Pell work and vision of the man behind the bill which proud to host Fulbright scholars and have done so since Grant are inextricably linked enabled the Pell Grant to be established was, like that their inception. The Pell Grant is available to American to my connections to the of Senator Fulbright, revered worldwide. citizens, but the success of it may well have influenced Fulbright Program. Senator I first became aware of the work of Senator Fulbright the thinking of other governments. Canada has Pell and Senator Fulbright as a young person growing up in the UK and recently introduced a federal student support grant for were two men who gave their developing, in my university years, a compelling students from low- and middle-income families, which interest in higher education policy. I met, from time names to legislation that has to time, colleagues who mentioned in passing that The vision of both men, born variously in 1905 changed the world. they were Fulbright scholars, and I would wonder (Fulbright) and 1918 (Pell), came out of those at the significance of this. It was clearly significant: generations of Americans who sought, through others were notably impressed. government processes, to make a contribution HEATHER EGGINS As time passed, I read more concerning the work to social justice by offering new opportunities for

MEMBER and vision of Senator William Fulbright. The advancement to U.S citizens.

Advisory Board of the Pell Institute Fulbright Program was his brainchild. He proposed for the Study of Opportunity in a bill in 1945 to use the proceeds from the sale Higher Education has some similarities with the Pell Grant. The Canada of surplus U.S. government war property to fund Student Grant has been consolidated from many international exchange between the U.S. and other different small grants, and offers a secure financial countries, thus promoting peace and understanding base for the student during the years of undergraduate between nations. The bill was signed into law by study. It supports some 245,000 students per year. President Truman in August 1946. Congress thus created the Fulbright Program, the largest education The Act initiating the Pell Grant was passed in 1973, exchange program ever. Its aim is to increase mutual at a time when low- and middle-income students understanding between the people of the United were finding it difficult to fund a college education. States and other countries through the exchange of Claiborne Pell had come to the Senate in 1960, after persons, knowledge, and skills. The grant program a varied career, one element of which was spent in has been remarkably successful: of its alumni, 43 investment banking during the 1950s. He was well

92 REFLECTIONS ON PELL June 2013 History, Facts & Policy Recommendations 93 authors are those members of the Fulbright of are those members authors Pell and Hence I worked. with whom research group interlinked. are inextricably me, Fulbright, for both Pell the legacy of that One can claim, rightly, and lasting effects and Fulbright has had powerful higher of the challenges global world: on our present to concerned them both continue which education over. the world policymakers the minds of exercise of government-inspired strategies to widen to strategies government-inspired of of topic The overall in higher education. participation in the 21st “Higher Education the Fulbright call was Response.” and National Global Challenge Century: and came under the sub-theme ‘elite My proposal of has long been that an issue mass—access and equity’, UK governments. .and U.S to concern of and College, Boston at I became a visiting scholar DC working considerable time in Washington, spent Opportunity of the Study for Pell Institute the at the by helped much I was in Higher Education. O’Brien, and her staff, who Colleen then Director, on access policy with key interviews facilitated contribute area. I had the chance to in that players publish a to finance, on student a conference to research a journal of paper in Opportunity Matters, and and programs, opportunity practice informing terms, international in perhaps most significant and Equity: publish a book Access edit and to 2010) (Sense Publishers, Perspectives Comparative international aspects of explores different which The book’s access and equity. to policy relating awarded a Fulbright New Century Scholarship in Scholarship Century a Fulbright New awarded of work based on the proposal a research 2005, for the effectiveness examine to I was the Pell Institute. In a curious way, their work can be work their way, In a curious modern very the seen as a response to highly is global, world the that realization of the ability and that interconnected, citizens their all enable to each country is potential skills’ maximize their to that the success of for vital economically generations. in future country across the postwar world that countries should offer countries that world the postwar across all their citizens. My to advancement opportunities for have well may in access issues interests research later a scholarship that gratitude my in part from stemmed the first degree despite gain my enabled me to grant contribute. to family my inability of Fulbright and Senator of The interconnection I was me when for Pell came together Senator fulfill their ambitions and, conversely, to become ambitions and, conversely, fulfill their the country’s skilled labor to major contributors America. of the wealth adding to force Fulbright both Senator ties together link neatly My own UK, person in the As a young Pell. from and Senator gain a State able to resources, I was with few a family was 18. The school I attended of the age Scholarship at South Yorkshire, of school in a mining district a state were England. Those scholarships of in the North sweeping the recognition of as a result partly instituted Senator Pell understood this basic truth, and his this basic Pell understood Senator enabled many years, the over has, grants scheme of to set out on the road to Americans of thousands education, and to then make available to them ways them ways to available then make and to education, can gain postsecondary qualifications. they in which to opportunities such offering is only A society which to can afford families who those children born into its potential. of is losing much fees university pay the children from every level of society and every every society and of level every the children from from IQ, of the same range have ethnic background the highest socio-economic the lowest to group enable each society is to The trick for group. such disadvantaged children from gifted those highly primary access good and secondary to backgrounds modern realization that the world is global, highly is global, highly the world that modern realization each country the ability of and that interconnected, maximize their skills’ all their citizens to enable to that of the success vital for is economically potential that Pell understood country in future generations. (Fulbright) and 1918 (Pell), came out of those came out of (Fulbright) and 1918 (Pell), sought, through who Americans of generations to a contribution make to processes, government new opportunities for offering social justice by In a curious way, .citizens. U.S to advancement the very as a response to can be seen their work in his honor in 1980 as Pell Grants. Their effect Pell Grants. in his honor in 1980 as been the Fulbright grants, has, like on individuals to opportunities educational enabling transformative, reach. been beyond have would be grasped that in 1905 both men, born variously The vision of aware of the strains on college-based of aid financial aware in 1972 in became involved 1960s, and in the late Act the Higher Education to preparing amendments which for grants The year. that Congress through going the primary first named Basic were sponsor he was renamed and were Opportunity Grants Educational t has been in large measure responsible for VINCENT TINTO Access Without what has been a marked decline over the past several decades in the gap in access to higher DISTINGUISHED UNIVERSITY I Support is Not PROFESSOR education between high and low-income students. Syracuse University Yet, for all that investment, the gap between high- Opportunity and low-income students in the completion of four-year college degrees has not declined. Indeed, it appears to have increased in the past two decades.

No federal program has been That this is the case reflects a number of issues, more important to providing not the least of which is the fact that so many low- access to higher education for income students begin higher education without the low-income youth than the academic and social resources to succeed in college. Without appropriate academic and social support Pell Grant program. many are unable to translate the opportunity Pell Grants provides into degree completion. Yet Pell Grants were never intended to fund programs in History, Facts & Policy Recommendations 95 It is a disservice to Senator Pell and the vision that and the vision that Pell Senator It is a disservice to not have we that program inspired the Pell Grant programs fund support adequately been willing to the achieve to enable us that on our campuses is designed, program the Pell Grant which for goal a income have regardless of all youth that namely college enter to not only meaningful opportunity hope to then can we Only in college. but succeed between States gap in the United the growing reverse which to the goal and attain the rich and the poor equality in a greater Pell aspired—namely, Senator opportunity. land of benefit from those services and targeted programs programs those servicesbenefit from and targeted support to funding sufficient the lack of of because change. This must those efforts. relatively fewer are receiving the support they need they the support are receiving fewer relatively their then that Little wonder college. in succeed to further behind has fallen completion college of rate students. more privileged those of of the evidence more than sufficient have we Yet in programs Support Student of effectiveness From students. low-income of the success promoting to counseling, mentoring services, advising, tutoring bridge summer like academic programs of a range and targeted learning communities, programs, those services receiving freshman seminars, students do than those who are more successful and programs do not students low-income many not. Regrettably, the availability of Student Support programs to to programs Support Student of the availability declined. More low- has their success promote but college, are gaining entry to income students Pell Grants have sought to keep pace with the cost keep to sought have Pell Grants TRIO and Student funding for attendance, college of Services as the number of has not. Indeed, Support has increased, college entering students low-income colleges and universities that provide such support. support. such provide that and universities colleges specifically program, the TRIO of is the purpose That funding for Services. But, while Support Student Grant program is designed… program Grant support programs on our campuses that campuses that on our support programs which the Pell for the goal achieve enable us to It is a disservice to Senator Pell and the vision and the Pell Senator is a disservice to It we that program Grant inspired the Pell that fund adequately willing to been not have 96 REFLECTIONS ON PELL June 2013 Pell Award Recipients 97

Pell Award Pell Recipients Grant

98 REFLECTIONS ON PELL June 2013 Advocacy Pell Award Recipients 99

e magazine as one e magazine as one magazine as one magazine as one Chang Ebony frequently called upon to speak publicly or to testify testify or to speak publicly to called upon frequently on these subjects. Congress the U.S. before by recognized She was higher education 100 outstanding nation’s the of and by administrators in women Black 100 most promising the of America. corporate education and technology-related publications and is and publications and technology-related education Council to the Director. Her 20-year association with association 20-year Her the Director. to Council including her service Board, as its vice the College year a sabbatical by only interrupted was president, specialist an educational as Foundation the Ford with with as consultant Africa and another year in West Brookings. at Program the Economic Studies corporate of serving on a variety In addition to and commissions, boards, councils, and nonprofit or co-authoredRice has authored a number of of the National Science Foundation’s Advisory Advisory Science Foundation’s the National of LOIS DICKSON RICE DICKSON LOIS Data Corporation. From 1984 to 1989, she was chair 1989, she was 1984 to From Corporation. Data Throughout her career she has focused on the her career she has focused Throughout and moderate- low- opportunities for expansion of income and minority students. Rice served as senior Brookings, at her work Prior to affairs with Control government for vice president Lois Dickson Rice is the Miriam Carliner Scholar Scholar Rice is the Miriam Carliner Lois Dickson Institution. the Brookings at Studies in Economics Board, Rice the College of vice president A former of higher education. is an expert on the financing pell grant advocacy advocacy grant pell recipient award Advocacy Grant pell grant legacy award recipients

Maura Casey began the communications firm, Casey was raised to believe in community service. As Maura holds a Master’s Degree in Journalism and CaseyInk, LLC, in 2009 after an editorial writing a journalist, she led exchanges between the United Public Affairs from The American University, career of 26 years. During her years as a journalist, States and the former Soviet Union; in 1998 she Washington, D.C. and a BA in Political Science from she won more than 40 regional and national awards helped start the first journalism exchange program State University College at Buffalo. She has been for commentary. In 1988 she shared a Pulitzer Prize in 20 years between the United States and Iran, married for 29 years to Peter J. Panzarella and has two awarded to the staff of the Lawrence (Massachusetts) even though the two countries weren’t talking. She children, Anna and Tim. Eagle-Tribune, where she was editorial page editor. was a founder and chairwoman of the Women and Maura was a member of four newspaper editorial Girls Fund of Southeastern Connecticut and helped boards, including The New York Times. She continues to raise its first million dollars. Recently, Connecticut write regularly for the San Francisco Chronicle and the Governor Dannel Malloy appointed her to serve on Hartford Courant. Connecticut’s Freedom of Information Commission.

MAURA CASEY

SUNY-Buffalo State College, 1979

100 Pell Award Recipients 101

(London), and numerous other print and other print and numerous numerous organizations, including Bates College in College including Bates organizations, numerous Greece. in Thessaloniki, College Maine and Anatolia the Economic Club of of He serves as president Indiana-based boards as on several Indiana as well Indiana and commissions including the Central The Children’s Museum of Partnership, Corporate Indiana. Central of Way Indianapolis, and the United JAMIE MERISOTIS JAMIE Bates College, 1986 Supplement Times Higher Education Politico, Education, Higher of The Chronicle Post, Huffington online publications. for and director Merisotis has served as trustee The Washington Post, National Journal, Journal, Post, National The Washington the quality and effectiveness of national-service national-service of the quality and effectiveness AmeriCorps. at initiatives books and several edited and Merisotis has written to contributor and he is a frequent monographs, He serves as magazines, journals and newspapers. PBS on the award-winning a regular commentator and his writing has Business Report,” “Nightly show appeared in of the National Commission on Responsibilities for for on Responsibilities Commission the National of Financing Postsecondary a bipartisan Education, and president the U.S. by commission appointed as an congressional leaders. Merisotis also served to related on issues senior management to advisor underrepresented populations. underrepresented in 2008, joining Lumina Foundation Before the Institute of president founding Merisotis was founding Prior to Policy. Higher Education for director Merisotis had served as executive IHEP, foundation committed solely to enrolling and enrolling to solely committed foundation As a first- college. from more students graduating recipient, and Pell Grant graduate college generation increase decades to for Merisotis has worked low-income, opportunity among educational historically minority and other first -generation, Jamie P. Merisotis is president and CEO of the and CEO of Merisotis is president P. Jamie private largest the nation’s Lumina Foundation, VY A. TRUONG

Boston University, 1998

Vy A. Truong is the first Vietnemese-born attorney Court Youth Corps Scholar program where he received the Student Employee of the Year award. to serve as assistant district attorney in Suffolk worked in the Supreme Judicial Court Clerk’s office. He attended Boston University on both federal and County, Massachusetts. During this time, he handled Throughout college and law school, Truong worked institutional grants and was able to graduate magna both felony and misdemeanor cases involving as a legal assistant in the General Counsel’s Office of cum laude with a dual degree in Political Science and Grantboth juveniles and adults. Truong began his career the Suffolk County Sheriff’s Department. After law Economics, with Honors, because of financial aid and aiding underserved populations with legal issues in school, he joined the Sheriff’s Department Office of the Pell Grant in particular. He earned a Juris Doctor the Boston area. Since 2004, Truong has continued Legal Services as a staff attorney where he provided from Northeastern University Law School and went to represent underserved populations as a court- legal services to the inmate population at the Suffolk on to serve as one of the state’s first Assistant District appointed attorney in Dorchester, Massachusetts. County House of Correction. Attorneys. His journey was chronicled in a 2003 Boston Globe article, “From Raft to Hall of Justice: A native of Saigon, Truong came to the U.S. at the age Truong’s entire adult life has been dedicated to Journey to Freedom from Vietnam Shaped New of 15 by boat as a political refugee. His interest in helping underserved populations understand Prosecutor’s Life.” the law began in high schools when he was selected complex legal matters.While at Boston University, to participate in the Massachusetts Supreme Judicial Truong worked in the financial aid office and

102 REFLECTIONS ON PELL June 2013 Legacy Pell Award Recipients 103 Receiving a Pell Grant allowed Jasmine to pursue pursue to Jasmine allowed a Pell Grant Receiving her choice and stay of the school at higher education her degree. complete to life. Now I am thankful for my life experiences life my I am thankful for Now life. others to and relate directly I face challenges because stories.” with similar Jasmine was placed into foster care at the age of of the age at care foster placed into was Jasmine the finances without education and pursued two provides. typically a family that system and support help opportunities to volunteer pursued Jasmine multiple and received others in her situation Jasmine the Pell Grant. scholarships, including the I found “Digging deep inside myself, writes, my something of make to push on and to courage Christ Summer Service Project, and as a volunteer for for a volunteer Service and as Project, Christ Summer Violence Campaign. in the Light Domestic the Live

JASMINE JOHNSON JASMINE Stephens College, 2012

fall of 2012. She has been involved in a number of in a number of 2012. She has been involved fall of an service including acting as community projects, America of Union International Laborers’ for intern Inspiring Sister for mentor a Region, Mid-Atlantic Crusade for and Campus Program Mentoring Sister Jasmine Johnson recently graduated magna cum graduated recently Johnson Jasmine MO, in Columbia, College Stephens from laude Trustees the Board of by selected she was where will be Johnson speaker. as the commencement Social School of University’s Columbia attending beginning in the degree a graduate pursue to Work Legacy