IBHE Presentation 1 Illinois Higher Education Performance Funding Model IBHE Board Meeting February 5, 2013 Dr. Alan Phillips

Purpose The purpose of this presentation is to propose a performance funding model that will allocate funding based on performance as a part of the FY 2014 IBHE Higher Education budget submission, in accordance with the intent of Public Act (HB 1503), the Performance Funding legislation, and that supports the goals of the Illinois Public Agenda. IBHE Presentation 2

Topics to be Covered Performance Funding Brief Overview Refinement Committee Effort Performance Funding Model Refinements Performance Funding Model (FY14) FY14 Budget Recommendations IBHE Presentation 3

Brief Overview IBHE Presentation 4

Performance Funding Objective To develop performance funding models for public universities and community colleges that are… – Linked directly to the Goals of the Illinois Public Agenda and the principles of Public Act – Equipped to recognize and account for each university’s mission and set of circumstances – Adjustable to account for changes in policy and priorities – Not prescriptive in how to achieve excellence and success 5 IBHE Presentation

Performance Metrics Shall: – Reward performance of institutions in advancing the success of students who are: Academically or financially at risk. First generation students. Low-income students. Students traditionally underrepresented in higher education. – Recognize and account for the differentiated missions of institutions of higher education. – Focus on the fundamental goal of increasing completion. – Maintain the quality of degrees, certificates, courses, and programs. – Recognize the unique and broad mission of public community colleges. IBHE Presentation 6 Public Act (HB 1503)

Performance Funding Model Community Colleges IBHE Presentation 7

8 Performance Funding Model ( Community Colleges) There are thirty-nine community college districts. The community college model contains six separate measures. Each measure is allocated an equal portion of the total performance funding amount. Each college competes for a portion of the funding for each measure. Those colleges that show a decrease in performance receive no funds based on performance. Those colleges that show an increase in performance receive a pro-rata share of the funding allocation for that measure based on the increase in their performance.

IBHE Presentation 9 Performance Funding Measures ( Community Colleges) 1.Degree and Certificate Completion. 2.Degree and Certificate Completion of “At Risk” students. 3.Transfer to a four year institution. 4.Remedial and Adult Education Advancement. 5.Momentum Points. 6.Transfer to a community college.

IBHE Presentation 10 Performance Funding Model 4-Year Public Universities

Performance Funding Model (4-Year Universities) All steps are identical at each university The model accounts for each institution’s unique mission by adding a weight to each measure. Each institution’s formula calculation is independent. The formula calculation for each institution will change each year based on annually updated data. The funding allocation is competitive. Funds are distributed on a pro rata basis according to each institution’s formula calculation. The model is not prescriptive in how to achieve excellence and success (what, not how). IBHE Presentation 11

Refinement Effort IBHE Presentation 12

Four Refinement Goals Refine the existing measures and sub-categories to the extent possible or find replacement measures that capture what we are trying to measure in a better way (i.e. Research Expenditures, Low Income Students, Cost per FTE, etc.). 1.Identify additional measures and sub-categories to add to the model. 2.Identify better and more current sources of data. 3.See if there is a better way to scale (normalize) the data. 4.Discuss ways to account for other factors (i.e. Hospitals, Medical Schools, Dental Schools, etc.) IBHE Presentation 13

Measures Deleted: Education and General Spending per Completion (RAMP) Added: – Cost per Credit Hour. (Cost Study) – Cost per Completion. (Cost Study) – Credit Hour Accumulation. (Institutional Data) – Time to Degree. (Institutional Data) IBHE Presentation 14

Sub-Categories Did not change the sub-categories. Sub-Categories are: – Low Income (Pell/MAP Eligible) – Institutional Data – Adult (Age 25 and Older) – CCA/ILDS – Hispanic - IPEDS – Black, non-Hispanic - IPEDS – STEM & Health Care (By CIP Code) – HLS + CIP 51 IBHE Presentation 15

General Refinement Issues Data continues to be an issue. – Although we have received our first ILDS submission, the quality of the data is not sufficient to use at this time. – The timeliness of data also continues to be a problem. – Some of the data we had to request from the universities Quality – We still have significant challenges addressing the issue of “maintaining” quality of degrees, certificates, courses, and programs. Sub-Categories – First Generation (Definition/Data issues) – Geographic Area IBHE Presentation 16

IBHE Presentation 17 Performance Funding Model (FY14) 4-Year Public Universities

Performance Funding Model Steps (4-Year Public University) Step 1 – Identify the performance measures or metrics that support the achievement of the state goals. Step 2 – Collect the data on the selected performance measures Step 3 – Award an additional premium (i.e. 40%) for the production of certain desired outcomes such as completions by underserved or underrepresented populations Step 4 – Normalize (scale) the data, if necessary, so it is comparable across variables. Step 5 – Weight each of the Performance Measures that reflects the priority of the Measure and the mission of the institution. Step 6 – Multiply and sum the Scaled Data times the Weight to produce the Weighted results. Step 7 – Add an adjustment factor for high cost entities (i.e. Hospitals, Medical, Dental, and Veterinary Schools). Step 8 – Use the final Weighted results (or Total Performance Value) to distribute performance funding. IBHE Presentation 18

Performance Measures IBHE Presentation 19 MeasureSource Bachelors Degrees (FY09-11) IPEDS Masters Degrees (FY09-11) IPEDS Doctoral and Professional Degrees (FY09-11) IPEDS Undergraduate Degrees per 100 FTE (FY09-11) IPEDS Education and General Spending per Completion (FY09-11) RAMP Research and Public Service Expenditures (FY10-12) RAMP Grad Rates 100%/150%/200% of Time (Fall Cohort)Institutional Data Retention (Completed 24/48/72 Semester Hours) (FY07-09)Institutional Data Cost per Credit Hour (FY09-11)Cost Study Cost per Completion (FY09-11)Cost Study Step 1 – Identify the performance measures or metrics that support the achievement of the state goals. Step 2 – Collect the data on the selected performance measures (3-year averages)

Sub-Categories IBHE Presentation 20 Sub-CategoryWeight Low Income (Pell/Map Eligible) 40% - Institutional Data Adult (Age 25 and Older) 40% Hispanic 40% Black, non-Hispanic 40% STEM & Health Care (by CIP Code) 40% - HLS + CIP 51 Step 3 – Award an additional premium for the production of certain desired outcomes such as completions by underserved or underrepresented populations

Scaling Factors Averaged the measures across all of the institutions. The average number of bachelors degrees will serve as the base value. Determine a scaling factor that will normalize the rest of the averages to the average number of bachelors degrees. Adjust the scaling factors as appropriate (i.e. Masters & Doctorates). Multiply all of the initial data by the scaling factor to normalize the data. IBHE Presentation 21 Step 4 – Normalize (scale) the data, if necessary, so it is comparable across variables.

Scaling Factors IBHE Presentation 22 Step 4 – Normalize (scale) the data, if necessary, so it is comparable across variables. MeasureUniversities 1-12 (Avg) Scaling Factor Adjusted Scaling Factor Bachelors Degrees (FY09-11) Masters Degrees (FY09-11) Doctoral and Professional Degrees (FY09-11) Undergraduate Degrees per 100 FTE (FY09-11) Grad Rates 100% of Time (Fall Cohort) Grad Rates 150% of Time (Fall Cohort) Grad Rates 200% of Time (Fall Cohort) Retention (Completed 24 Semester Hours) (FY07-09) Retention (Completed 48 Semester Hours) (FY07-09) Retention (Completed 72 Semester Hours) (FY07-09) Cost per Credit Hour (FY09-11) (Cost Study) Cost per Completion (FY09-11) (Cost Study) Research and Public Service Expenditures (FY09-11) 2,822 1, ,644 1,453 1, , ,914,

Performance Measure Weights IBHE Presentation 23 Step 5 – Weight each of the Performance Measures that reflects the priority of the Measure and the mission of the institution. Doctoral/ Research-Very High Research-HighResearch Measure Bachelors Degrees Masters Degrees Doctoral and Professional Degrees Undergraduate Degrees per 100 FTE Grad Rates 100% of Time Grad Rates 150% of Time Grad Rates 200% of Time Retention (Completed 24 Semester Hours) Retention (Completed 48 Semester Hours) Retention (Completed 72 Semester Hours) Cost per Credit Hour Cost per Completion Research and Public Service Expenditures UIUCUICNIUSIUCISU 17.0%18.0%28.0% 33.0% 14.0%15.0% 14.0%23.0% 13.0%14.0%10.0%8.0%6.0% 4.0% 11.0%13.0%12.0% 1.5% 2.0% 1.0% 1.5% 0.5% 1.0% 1.5% 2.0% 0.5% 1.0%0.5%1.5% 0.5% 1.0%0.5%1.5% 45.0%42.0%28.0%30.0%15.0% 100.0%

Performance Measure Weights IBHE Presentation 24 Step 5 – Weight each of the Performance Measures that reflects the priority of the Measure and the mission of the institution. Masters Colleges & Universities (Large) Measure Bachelors Degrees Masters Degrees Doctoral and Professional Degrees Undergraduate Degrees per 100 FTE Grad Rates 100% of Time Grad Rates 150% of Time Grad Rates 200% of Time Retention (Completed 24 Semester Hours) Retention (Completed 48 Semester Hours) Retention (Completed 72 Semester Hours) Cost per Credit Hour Cost per Completion Research & Public Svc Expenditures SIUEWIUEIUNEIUCSUGSUUIS 42.0%40.0% 45.0%43.0% 28.0%25.0%26.0% 25.0%27.0% 2.5%1.0%0.0% 1.0% 12.0%13.0% 5.0%8.0% 2.0%2.5% 0.0%2.5% 1.5%2.0% 0.0%2.0% 1.0% 0.0%1.0% 5.0%1.0% 1.5%2.0% 7.0%2.0% 2.5% 0.0%2.5% 1.5%4.0% 1.5%4.0% 3.5%2.0% 100.0%

Performance Value Calculation IBHE Presentation 25 Step 6 – Multiply and Sum the Scaled Data times the Weight to produce the Performance Value for each institution. Measure Bachelors Degrees Masters Degrees Doctoral and Professional Degrees Undergraduate Degrees per 100 FTE Grad Rates 100% of Time Grad Rates 150% of Time Grad Rates 200% of Time Retention (Completed 24 Semester Hours) Retention (Completed 48 Semester Hours) Retention (Completed 72 Semester Hours) Cost per Credit Hour Cost per Completion Research & Public Svc Expenditures 2,822 1, ,644 1,453 1, ,566 $112,914,667 3,522 1, ,644 1,453 1, ,566 $112,914,667 DataData + Premium (Data+Premium) x Scale 3,522 1, ,000 1,350 2,300 2,500 3,288 2,906 2,700 -2,760 -1,828 5, % 25.0% 5.0% 10.0% 1.5% 1.0% 0.5% 1.0% 1.5% 2.0% 1.5% 1.0% 20.0% 100.0% Total Performance Value 1, ,129 3,200 xWeight =Scale

Performance Value Calculation IBHE Presentation 26 Step 7 – Add an adjustment factor for high cost entities (i.e. Hospitals, Medical, Dental, and Veterinary Schools) Divide the amount of the university GRF appropriation allocated to fund the high cost entity by the total university GRF appropriation. Multiply this factor by the university performance value and add the result back to the performance value. This give you a total performance value for institutions with these high cost entities. Example: $20M/$200M = X 3200 (PV) = = 3520 = Total Performance Value

IBHE Presentation 27 Percentages for Distribution Total Performance Value 10,840 4,435 3,200 17,302 Percentage of Total 58.7% 24.0% 17.3% 100% Distribution: Pro Rata$587,000 $240,000 $173,000 $1,000,000 University 1 University 2 University 3 Total Funding Allocation Based on Performance Step 8 – Use the Weighted results (or Total Performance Value) to distribute funding based on a Pro Rata Share of the total amount of funds set aside for performance funding.

Results for FY14 Performance funding values increased for all 12 of the four-year public universities from FY13 to FY14. Based on their performance, public universities earned back most or all of their performance funding set-aside. IBHE Presentation 28

Refinement Issues for FY15 What is the best way to account for the difficulty of getting underrepresented students through to completion throughout the model? What is the best way to account for less prepared students in the model? Are there differences in the cost per completion for different sub-categories of students (i.e. is cost for completion for an adult student different than that of a STEM student)? Should that be integrated in the model? What is the best way to address the issue of transfer students and part-time students? IBHE Presentation 29

Refinement Issues for FY15 Are there other high value degrees and programs, in addition to the STEM programs, that we should add to the model? Are we giving enough priority to measures of efficiency? What is the best way to account for high cost entities (i.e. Hospitals and Medical, Dental, and Veterinary schools)? Are we adequately accounting for institutional improvement from year to year? IBHE Presentation 30

FY14 Budget Recommendations IBHE Presentation 31

Performance Funding Budget Recommendations Performance funding should be implemented slowly starting with small funding amounts Additional funding should be allocated to performance if there are increases in higher education appropriations. If there is no additional funding available to be allocated based on performance, the amount reallocated from the base level of funding should be small. The amount allocated to performance should increase over time, but only when better data is available and only when the performance model is stable and to a point where it can be locked in for a period of time (i.e. 3-5 years). IBHE Presentation 32

Recommendation 33 IBHE Presentation If additional funding for performance is not available, 0.5% of the FY 2014 Higher Education appropriation for the 4-year public universities should be allocated based on performance (approximately $6.1M at current levels of funding). For the Community Colleges, the amount of $360K be allocated based on performance. Both of these recommendations are consistent with the IBHE performance funding recommendation for FY2013.

Questions/Comments? IBHE Presentation 34

Back-Up Charts IBHE Presentation 35

Performance Funding Model (FY13) Community Colleges IBHE Presentation 36

Performance Funding Model (Community College Example) Measure 1 – Students who completed a degree or certificate Model (Part 1) = Percentage change in number of associate degrees awarded from FY08-FY09. IBHE Presentation 37 District1 District 2 District 3 District 4 …. District 39 FY 2009 Number of Associate Degrees Awarded % Change Greater than Zero Allocation 575 1, ,484 … , , ,630 … , % 30.9% -10.0% 9.8% …. 6.4% … $9, $3.045 …. $1,976 $80,000 FY 2008 Number of Associate Degrees Awarded Pro Rata Share = $80,000/2.585 = $30,951 Funding Allocation = Amount of Increase X Pro Rata Share –(i.e..309 X 30,951 = $9,579)

Degree & Certificate Completion Measure 1 – Students who completed a degree or certificate Model (Part 1) = Percentage change in number of associate degrees awarded from FY08-FY09. Range of Results = % to +30.9% Number of districts receiving funding – 26 Range of Increase = (.2%-30.9%) or (.002 to.309) Funding Allocation = $80,000 Total of increase for all 26 schools = Pro Rata Share = $80,000/2.585 = $30,951 (i.e. 1 share = $30,951) Funding Allocation = Amount of Increase X Pro Rata Share – (i.e..002 X $30,951 = $74) Range of Allocation = $74 to $9,579 IBHE Presentation 38

Degree & Certificate Completion Measure 1 – Students who completed a degree or certificate Model (Part 2) = Percentage change in number of certificates awarded from FY08-FY09. Range of Results = % to % Number of colleges receiving funding – 24 Range of Increase = (.9%-103.8%) or (.009 to 1.038) Funding Allocation = $40,000 Total of increase for all 24 schools = Pro Rata Share = $40,000/5.324 = $7,512 (i.e. 1 share = $7,512) Funding Allocation = Amount of Increase X Pro Rata Share – (i.e..009 X $7,512 = $64) Range of Allocation = $64 to $7,797 IBHE Presentation 39 Total Allocation for Measure 1 = $120,000 Total Number of colleges receiving funding = 35 Range of Allocation = $331 to $9,579 Measure 1

Degree Production of At-Risk Students Measure 2 – At-risk students who completed a degree or certificate (i.e. students with Pell or taking remedial courses) Model = Percentage change (number of Pell recipients + number of students who have taken remedial courses) from FY08-FY09. Range of Results = % to +26.5% Number of colleges receiving funding – 20 Range of Increase = (2.3%-26.5%) or (.023 to.265) Funding Allocation = $120,000 Total of increase for all 20 schools = Pro Rata Share = $120,000/2.913 = $41,201 (i.e. 1 share = $41,201) Funding Allocation = Amount of Increase X Pro Rata Share – (i.e..023 X $41,201 = $938) Range of Allocation = $938 to $10,936 IBHE Presentation 40

Transfer to a Four Year Institution Measure 3 – Students who transfer to a four year institution within 3 years Model = Percentage of Fall 2006 entrants who transferred to 4-year institutions by Fall Range of Results = 12.3% to 35.8% Number of colleges receiving funding – 39 Range of Increase = (12.3%-35.8%) or (.123 to.358) Funding Allocation = $120,000 Total of increase for all 39 schools = Pro Rata Share = $120,000/10.72 = $11,134 (i.e. 1 share = $11,134) Funding Allocation = Amount of Increase X Pro Rata Share – (i.e..123 X $11,134 = $1,375) Range of Allocation = $1,375 to $3,988 IBHE Presentation 41

Remedial and Adult Education Advancement Measure 4 – Remedial students who advance to college level work. Model = Percentage of FY 2009 remedial students who advanced to college level courses. Range of Results = 43.8% to 100% Number of colleges receiving funding – 39 Range of Increase = (43.8%-100%) or (.438 to 1.0) Funding Allocation = $120,000 Total of increase for all 39 schools = Pro Rata Share = $120,000/23.82 = $5,039 (i.e. 1 share = $5,039) Funding Allocation = Amount of Increase X Pro Rata Share – (i.e..438 X $5,039 = $2,207) Range of Allocation = $2,207 to $5,039 IBHE Presentation 42

Momentum Points Measure 5 – 1 st time/PT students completing 12 credit hours w/in the first year, 1 st time/PT students completing 24 credit hours w/in the first year, and Adult Education and Family Literacy level (AEFL) gains. Model = % change (number of students completing 12 CR + number of students completing 24 CR + number of students with an AEFL level gain) from FY08-FY09). Range of Results = -53.9% to 69.6% Number of colleges receiving funding – 22 Range of Increase = (.9% to 69.6%) or (.009 to.696) Funding Allocation = $120,000 Total of increase for all 22 schools = Pro Rata Share = $120,000/6.478 = $18,529 (i.e. 1 share = $18,529) Funding Allocation = Amount of Increase X Pro Rata Share – (i.e X $18,529 = $171) Range of Allocation = $171 to $12,898 IBHE Presentation 43

Transfer to Another Community College Measure 6 – Community college students that transfer to other community colleges. Model = Percentage change (students transferring from one community college to another community college) from (FY06-FY09) to (FY07-FY10). Range of Results = 53.7% to 155.4% Number of colleges receiving funding – 39 Range of Increase = (53.7%-155.4%) or (.537 to 1.554) Funding Allocation = $120,000 Total of increase for all 39 schools = Pro Rata Share = $120,000/37.01 = $3,242 (i.e. 1 share = $3,242) Funding Allocation = Amount of Increase X Pro Rata Share – (i.e..537 X $3,242 = $1,741) Range of Allocation = $1,741 to $5,038 IBHE Presentation 44

Proposed Performance Funding Step 1 – Flat or Level Budget from FY 13 Funding. – 4-Year Universities - Flat funding with no more than 0.5% of the budget reallocated for Performance Funding (approx $6.15M). – 2-Year Colleges – Flat funding with $360K reallocated based on the six community college performance measures. Step 2 – Overall funding is a 2.5% increase over FY 13. – 4-Year Universities – Total increase of $24.6M (2.0%). Of the total, $12.3M (1.0%) is allocated for performance funding. – 2-Year Colleges – Total increase of $5.8M (2.0%), including a one-time $1.2M reallocation for legislative initiatives, with $360K reallocated based on the six community college performance measures. IBHE Presentation 45 Step Budget Recommendation

Proposed Performance Funding Step 3 – A 4.5 % increase above the FY 13 Funding Level – 4-Year Universities – The total increase is $49.2M (4.0%), $24.6M (2.0%) to Performance Funding, $24.6M (2.0%) to core institutional support. – 2-Year Colleges – The total increase is $11.6M (4.0%), including $1.2M reallocation, $360K to Performance Funding, $8.1M to Base Operating Grants, and $3.8M to Equalization Grants. Step 4 – An 8.3% increase above the FY 13 Funding Level (Restoration to roughly FY 12 funding levels). – 4-Year Universities – The total increase is $79.6M (6.5%), $24.6M to Performance Funding, $30.4M to Deferred Maintenance, and $24.6M to Institutional support. – 2-Year Colleges – The total increase is $20.8M (7.2%), including $1.2M reallocation, $360K to Performance Funding, $13.0M to Base Operating Grants, and $7.7M to Equalization Grants. IBHE Presentation 46 Step Budget Recommendation