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Innovative Financing of Education
Innovative Financing of Education
Jinusha Panigrahi1
Abstract
With the onset of new public management, there is a shift in the methods of
financing of higher education institutions across the countries of the world,
particularly emerging market economies, from public financing to private financing
of higher education.1 Many countries adopted this shift very quickly while others
have moved towards a gradual shift in adopting new systems to various extents.
With the gradual decline in public financing of higher education institutions in
developing countries like India, due to the competing demand for public funds
and thereby privatization of public higher education institutions to share the cost
of higher education to meet the growing demand for higher education, there
are many new innovative methods that are adopted to finance higher education
institutions. Further, the massification of higher education has encouraged the
expansion of private higher education institutions to meet the sudden burst in
the demand for higher education.
The article discusses the issues and challenges in implementing the innovative
methods of financing across the developed and developing countries with special
regard to their implementation in a developing country like India.
Keywords
Higher education, public financing, innovative methods, public higher education
institutions
1
Assistant Professor, Centre for Policy Research in Higher Education, National University of
Educational Planning and Administration, New Delhi, India.
Corresponding author:
Jinusha Panigrahi, Assistant Professor, Centre for Policy Research in Higher Education, National
University of Educational Planning and Administration, New Delhi - 110016, India.
E-mail: jinusha.jnu@gmail.com
62 Higher Education for the Future 5(1)
Introduction
Financing of higher education in the world has undergone several transformations
which is different for different countries. Further, the transformation and dimen-
sions vary between developed and developing countries. While financing of higher
education is by the government in the developed world, it is gradually moving
towards private financing in developing countries. The gradual move towards mas-
sification of higher education and therefore the resulting expansion in enrolment in
higher education across developed and developing countries have necessitated a
gradual increase in the financing of higher education. But, the competing demand
for public funds from other priority sectors such as health, defence and in fact uni-
versalization of elementary education has compelled the government as well as
higher education institutions (HEIs) to explore alternative and innovative methods
to finance higher education. In the recent past, many developed countries and a
few developing countries have already explored new innovative methods such as
encouraging funds from philanthropists, charitable organizations and corporates,
investing on mutual funds, bonds of financial institutions and academia and industry
linkages etc. to generate resources. For the majority of developing and underdevel-
oped countries, the traditional alternative methods of financing such as student fees,
low-interest educational loans and voucher systems such as student support system
to finance their education as per their choice continue to complement the existing
public sources of funding (Panigrahi, 2010). Some methods less widely explored by
the HEIs in these countries are alumni funds, research projects and consultancy
activities, introduction of new courses and so on. The new innovative methods of
financing are challenging for such developing countries; as for their implementa-
tion, there is the need of restructuring the economy and education system before
implementing these methods successfully.
Background
The report on ‘Investing in Education for a Changing World’ by the International
Commission on Financing Global Education Opportunity states that for creating
the learning generation, there is the need of US $3 trillion annual education spend-
ing in low- and middle-income countries by 2030 compared to the current level of
US $1.2 trillion (United Nations, 2016) due to the rapid expansion of enrolment
in education. Higher education plays a significant role in creating the opportunity
for learning globally. The growing demand for higher education in a globalized
knowledge economy has resulted in the rapid expansion of higher education
enrolments. Taking four different time periods starting from 1985 to 2014, the
expansion in enrolment is visible from Table 1 both in developed and in develop-
ing countries. While among the OECD countries, the USA has got the maximum
expansion followed by Sweden and the UK and from developing countries, it is
the Russian Federation followed by Brazil, Indonesia and India. The underdevel-
oped countries have very low gross enrolment ratio (GER) and yet a long way to
go to reach that massive level of enrolment.
Panigrahi 63
Diaspora Bond
As stated in his study, Bradlow (2006) discusses elaborately the emergence of
the diaspora bond as an innovative method of financing when there are financial
constraints in funding the development activities of any country. Though the
method is not widely used, Israel (since 1951), India (since 1991), Srilanka
(in 2001), South Africa and Lebanon are some of the countries who have been on
the forefront in raising hard currency financing from their respective diasporas
living abroad (Bradlow, 2006). As per the above stated study, bonds issued by the
Development Corporation for Israel is over US $25 billion, State Bank of India
has raised over US $11 billion and the Government of Sri Lanka has raised an
amount of US $580 million. Diaspora bonds are basically a kind of long dated
security which can’t be redeemed before maturity compared to the foreign cur-
rency deposits (FCDs) that are capable of withdrawal even before maturity.
Hence, the diaspora bond is a better option than FCDs as an investment for future.
The diaspora bond is a kind of philanthropic contribution for one’s country’s
development driven by a sense of nationalism. So, in this way, the two parties
66 Higher Education for the Future 5(1)
involved in the investment process such as the concerned country and the diaspo-
ras are benefited, in receiving a continuous flow of capital to further invest in
development purposes like education and to distribute the composition of their
asset for future returns.
Debt Swaps
The debt swap is a popular instrument of debt relief since the 1980s and is also
looked at as an innovative method of financing for development activities of the
debtor country, with the recent increase in debt swapping for the education sector
as part of Millennium Development Goals.
As the UNESCO report points out in its study (UNESCO, 2011), in case of
debt swap, the creditor forgives debt on the condition that the debtor makes avail-
able some specified amount of local currency funding to be used for specific
developmental purposes.
Before the adoption of the debt swap, it is necessary to prepare the ground in
the recipient county to make the debt swap very effective. The establishment of an
additional fiscal space is desirable for which it should be taken care of that the
expenditure due to swap must not exceed what would have been the expenditures
in the repayment of debt. Debt swap would be successful with a cooperative
approach, whereby debt-for-education supporters team up with other interests in
a common debt-for-development funding effort, and in the next stage, sectoral
allocation of funds needs to be worked out to conform to the development plans
of debtor countries (UNESCO, 2011).
Panigrahi 67
The above mentioned study states that, Spain and Ghana entered into debt-for-
human development swaps in 2009 and many non-Paris Club and commercial cred-
itors already involved in debt relief operations and South-South cooperation have
become even more important in today’s interconnected world. All such changes as
stated in the study to explore the untapped potential and get involved in large-scale
debt swap initiatives which require greater transparency over their respective debt
relief policies and attitudes towards debt-for-development swaps.
After debt swaps, and hence when debt is forgiven, it gives a boost to the
domestic bonds that contribute towards the long-term stream of savings to the
recipient country. Domestic bonds are supported by private sector donors to
provide funding over a period of time. It is argued that domestic bonds can also
be issued based upon the securitization of future streams of revenue such as
college tuition payments, student loan payments and student housing expendi-
tures so that graduates will pay from their future earnings after the completion of
their course, or their parents would pay and it can be used by the respective
country’s government for funding new infrastructure development activities in
tertiary education (UNESCO, 2011).
Firstly, one or more creditors agree to forgive specific debts in exchange for a commit-
ment from the debtor country’s government to periodically place into a special account
(called the Debt Conversion Account (DCA)) at their central bank or treasury the local
currency saved from not having to make principal and interest payment on the debt, sec-
ondly, the payments by the government into the DCA (the ‘counterpart funds’) would
be in local currency (which would save the country from having to utilize its foreign
exchange reserves) and would be made over time in accordance with the original debt
service schedules of the converted debts. The government could then issue local cur-
rency bonds (DCDBs) which would be repaid from the stream of future payments going
into the DCA. Depending on the amounts of debt swaps in each county, the time profile
of the future stream of counterpart funds, and debt market conditions, one or more
DCDBs could be issued in each country, varying in size, tenor, interest rate and issuance
date as appropriate.
The returns from such investments are directed towards infrastructure develop-
ment rather than other recurring expenses. While the government of the respective
developing country would be in charge of these DCDBs and its monitoring, the
corresponding investors/buyers of these bonds are expected to be financial institu-
tions, private individual investors or foreign investors.
68 Higher Education for the Future 5(1)
(Table 4 Continued)
The B.G. Kher Committee gave emphasis on the different methods of financing
education. The Kothari Commission focused on issues specific to states in the
financing of education. The National Education Policy of 1968 for the first time
emphasized on alternative methods of financing along with government sources. A
study group for resource mobilization was formed in 1970 for recommendations in
alternative sources of financing. The process of recommendations for mobilization
of resources through various alternative innovative methods of financing as comple-
mentary to government financing continued for the following years. Punnaya
Committee report, Swaminathan Committee as well as Ambani-Birla Committee
gave major recommendations on cost sharing with the students by hiking of fees and
generation of resources by academia-industry linkages, public-private partnerships
and so on. CABE committee and National Knowledge Commission stressed upon
the generation of resources by HEIs through research activities and intellectual
property rights, respectively. The Yashpal Committee report went a few steps ahead
and suggested for encouraging fund raising through philanthropy, alumni and other
non-governmental sources and foreign university participation. The N.R. Narayan
Murthy report during the period of growing participation of private HEIs suggested
corporate sector participation in higher education to further the market participation
for improving efficiency and autonomy.
So, the gradual transition of higher education from a public entity towards the
privatization of public HEIs and the growth of private sector has undergone vari-
ous policy recommendations.
The share of public expenditure as a percentage of GDP across different levels
of education in India gives some understanding regarding the changing perspec-
tives of higher education financing compared to other sectors in recent years. As
shown in Table 5, the share of university and higher education have declined in
recent years compared to primary and secondary levels of education.
While the share of total expenditure on education by state government and
union territories has experienced a minor increase since 2012–2013, the share of
expenditure on university and higher education as a percentage of the GDP has
declined in 2014–2015. Similarly, the expenditure by the central government on
university and higher education has not experienced any significant change after
Table 5. Public Expenditure on Education as Percentage of GDP in India
Diaspora Bond
The State Bank of India has taken certain initiatives in the recently renowned
innovative method of financing like diaspora bonds. The study by Ketkar and
Ratha (2009) has found the growing reliance of India on this new innovative
method of financing. As per the study,
on three separate occasions the Indian government has tapped its diaspora base of non-
resident Indians for funding: India Development Bonds (IDBs) following the balance-
of-payments crisis in 1991 ($1.6 billion), Resurgent India Bonds (RIBs) following the
imposition of sanctions in the wake of nuclear testing in 1998 ($4.2 billion), and India
Millennium Deposits (IMDs) in 2000 ($5.5 billion). Unlike the Jewish diaspora, the
Indian diaspora provided no patriotic discount on RIBs and only small ones on IMDs.
When RIBs were sold in August 1998 to yield 7.75 percent on U.S. dollar-denominated
bonds, the yield on BB-rated U.S. corporate bonds was 7.2 percent. Diaspora bonds
are as attractive to issuers as they are to investors. From the issuer’s point of view,
they are a reliable source of financing during times of difficulty. From the investor’s
perspective, they offer an attractive alternative for diversifying risk. It is expected to be
implemented in case of higher education too given its own limitations.
Conclusion
Though India has explored the traditional methods of innovative financing of higher
education, given the massification of higher education and the pressing requirement
of increased allocation to higher education, there is a concern over exploring the
new methods without being prepared at the ground level for implementation of
these innovative methods of financing of higher education. With concern over
access to higher education by a diversified student population in India and concern
over quality and regulatory mechanism, that too with growing private providers of
higher education, private initiatives to finance need to be studied further to opti-
mally utilize the investment done on higher education financing. But the role of the
government would always be inevitable for monitoring and regulating such flows
equally to different streams within higher education.
Notes
1. The article is a revised version of the paper presented at the YES Institute National
Convening on Developing a Credit Market for Higher Education in India, 4 August
2016, at India International Centre, New Delhi.
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Author’s Bio-sketch
She has also published articles in various journals like Asian Economic Review,
Higher Education for Future, Journal of Educational Planning and Administration,
74 Higher Education for the Future 5(1)