29th Annual Conference of the
Student Financial Aid Research Network Conference by
Stephen G. Katsinas, Education Policy Center, The University of Alabama
Janice Nahra Friedel and Linda Serra Hagedorn, Iowa State University
Memphis, Tennessee
June 14, 2012
THANKS for the
OPPORTUNITY

Paul Simon, 1928-2003
Dedication-to Paul Simon
Member, House of Representatives, and
Chairman, Postsecondary Education
Subcommittee, 1981 to 1985
United States Senator, 1985-1997.
Like Senator Pell, a quiet champion of federal funding for higher education. His
1982 Simon Amendment restored $360 million in Pell funding as an alternative to
President Ronald Reagan's "New
Federalism" budget cut proposals. The
Simon Amendment preserved the modern federal role in student aid.
There are lessons for today from how Mr. Simon attracted a bipartisan majority of 330 votes, including a majority of the Republican House
Caucus, to restore Pell Grant funding.

2
The Growing Impact of the New Pell Funding-A Profile of 205 Community Colleges in 25 States (4/2011)
3
4
5
A Statewide Profile of Iowa's Community Colleges
(1 of 9 statewide studies from the 4/2011 survey)
Pell Grants and the Lifting of Rural America's Future
(February 2012)
The Impact of Pell Grants at Kansas Community
Colleges--Technical Report (March 2012)
DISCUSSION--on what Mr. Simon might teach us moving forward The Education
Policy Center
The University of Alabama

Data Sources/Acknowledgments
1. OUR RESEARCH TEAM includes scholars from
* The University of Alabama, Education Policy Center
* Iowa State University
* University of North Carolina at Charlotte
* Mississippi State University, Stennis Institute of Government
Principals in annual national state community directors surveys are Steve Katsinas
(Alabama), Janice N.Friedel (Iowa State), & Mark M.D'Amico (UNCC). Principals in our Pell Grant Research Team are Katsinas and R. Frank Mensel (Alabama), Linda
Serra Hagedorn and Friedel, (Iowa State), D'Amico (UNCC), and Ed Davis (MSU).
2. WE THANK OUR TEAMS OF STUDENTS: Joyce Lui (ISU), Rebecca
Midkiff, Melissa Tarrant, Rhonda Wilgo, Chad Clark, Dustin Smith, Lucas Adair (UA)
3. WE ALSO THANK OUR UA/EPC FELLOWS: Senior Fellow Vincent A.
Lacey, and Fellows Michael A. Kennamer, Clint Kinkead, and Matt DeMonBrun.
4. TO IDENTIFY THE GEOGRAPHIC DIFFERENTIAL , we begin with an analysis of IPEDS data using the Carnegie Foundation's 2005 and 2010 Basic
Classification of Associate’s Colleges. We thank David Hardy (Alabama) for his assistance, and a small research grant from NASFAA for support.
WE ESPECIALLY THANK FRANK MENSEL & ROBERT PEDERSEN, whose commitment to access and the social uplift rural community colleges provide inspires us today

We thank NASFAA for supporting some of this past work with a Research Grant in 2007

More rural community college students rely on federal, state, and institutional GRANTS…and more incur DEBT
NUMBER of NUMBER in Cohort Enrolled at Colleges who
Carnegie
Basic
Classification of Associate’s
Colleges
Total
Enrolled
Students
Total
Students in Cohort
Received
ANY
Aid
Received
Federal
Grant Aid
Received
State/
Local
Grant Aid
Received
Institutional
Grant Aid
Incurred
Student
Loan
Debt
Rural 3,391,856 257,029 180,571 111,559 80,903 42,498 62,780
Suburban 2,999,931 171,595 82,454 46,944 50,896 11,141 22,805
Urban 3,149,138 146,416 90,036 60,331 51,957 10,021 21,153
Total 9,540,925 575,040 353,061 218,834 183,756 63,660 106,738
Rural
Suburban
Urban
Total
PERCENT of PERCENT in Cohort Enrolled at Colleges who
36% 45% 51% 51% 44% 67% 59%
31% 30% 23% 21% 28% 18% 21%
33% 25% 26% 28% 28% 16% 20%
100% 100% 100% 100% 100% 100% 100%
Source: Hardy and Katsinas, 2007 analysis of 2005 IPEDS SFA Cohort Study Survey

OUR INTEREST in assessing Pell was heightened when visiting
Pickens County (AL), one of America's poorest, in May 2010.
Pickens lies in both the federal ARC and the DRA, and is served by Bevill
State Community College's Carrollton Center (single building).

Data Bevill's staff pulled revealed the impact of the Summer Pell 2010 was staggering...
2009
SUMMER
2010
(unofficial )
CHANGE
Number Percent
CARROLTON CENTER, Pickens County
Enrollment 169 249
Pell Grant recipients
Pell recipients as a percentage of enrollment
106
63%
189
75%
80
80
63
55
BEVILL STATE COMMUNITY COLLEGE, College-wide
Enrollment
Pell Grant recipients
Pell recipients as a percentage of enrollment
2,630
940
36%
3,038
1,647
54%
408 13
707 17
Pickens' Feb. 2011 rate of unemployment -11.5%

(April 2011)
Added new university-based partners!

Term
Acad Yr
(9-mos)
Type of Pell
Grant 2008-9 2009-10 Dollars %
Pell I $1,260,243,737 $1,938,548,463 $678,304,725 54%
Summer
Pell I $154,537,006 $354,172,895 $199,635,889 129%
Pell II
$ 91,832,851
All
Pell
$154,537,006 $446,005,745 $291,468,740 189%
Calendar
Year
All
Pell
$1,414,780,743 $2,384,554,208 $969,773,465 69%

Summary of Enrollment and Pell, in
Numbers & Dollars, 2008-9 & 2009-10
(n=205 community colleges)
YEAR Change
2008-2009 2009-2010 Number %
Unduplicated
Headcount
Enrollment
2,773,257 3,025,490 252,233 9
Pell
Awards
679,600 1,062,338 382,738 56
$1,414,780,743 $2,384,554,208 $969,773,465 69
Pell Awards as a
Percentage of
Total
Enrollment
Our sample included 72% rural, 14% suburban, and 14% urban community colleges.
This compares to about 60-20-20 ratio of institutions in the Carnegie classification.

Net Average Changes in Key Attendance
Cost Elements Covered by Pell
CALENDAR YEAR
Change in
08-09 09-10
Dollars %
$4,011 $4,235 $246 6% Average Tuition & Fees
Average Books & Supplies $1,684 $1,741 $57 0%
Average T&F + B&S $5,695 $5,976 $281
Average Pell Value
Per 12 Months Student
$3,654 $4,150 $496 14%
Average of Net Key
Attendance Costs Remaining
AFTER Pell Award(s)
$2,310 $2,009 -$301 -13%
Average Percentage of Key
Attendance Costs Remaining
AFTER Pell Award(s)
39% 33%

Calendar Year
Carnegie Classification
Rural Small
Pell Awards as a % of...
Unduplicated Headcount
Enrollment
Full-Time Equivalent
Enrollment
2008-9 2009-10 2008-9 2009-10
51 71 72 97
Rural Medium
Rural Large
36
27
51
47
55
44
77
70
RURAL, Sub-Total
Suburban, Single Campus
Suburban, Multicampus
SUBURBAN, Sub-Total
Urban, Single Campus
Urban, Multicampus
32
33
31
31
37
30
50
51
44
46
53
46
50
56
48
50
41
50
75
84
67
71
57
75
URBAN, Sub-Total
GRAND TOTAL
31
32
47
48
49
49
71
73
Pell funding increases had highest impact at Rural-Small and Medium CCs

Pell as Percentage of Unduplicated Headcount
& Full-Time Equivalent Enrollments
SUMMER PELL
&
UNDUPLICATED
HEADCOUNT
YEAR SUMMER PELL
&
08-09 09-10
FTE
ENROLLMENT
YEAR
08-09 09-10
Unduplicated
Headcount
714,724 786,501
FTE
Enrollment
292,262 338,048
Pell I, Awards
Pell II, Sum. only
152,263 264,631 Pell I, Awards
58,775 Pell II, Sum. only
152,263 264,631
58,775
Pell I+II, Sum, All 152,263 323,406 Pell I+II, Sum, All 152,263 323,406
Pell Awardees as a % of Total
Unduplicated
Summer
Enrollment
21% 41%
Pell Awardees as a % of Total
FTE
52% 96%
Summer
Enrollment

3
(April 2011)
Iowa is one of nine states for which we obtained complete/near complete results
New university-based research partners are added. We thank the
Kansas Association of Community College Trustees for support!

Summary of Enrollment and Pell
Awards at Iowa Community Colleges
YEAR Change
2008-9 2009-10 Number %
Unduplicated
Enrollment
157,236 176,477 19,421 12%
35,555 62,205 26,650 75%
Pell Awards
$84,616,438 $158,318,967 $73,702,529 87%
Pell Awards as a
Percentage of
Total Enrollment

MORE STUDENTS EARN MORE CREDITS:
New Pell investments produces declining net marginal cost* and more low-income students attend Iowa community colleges,
Academic Year 2008-09 to 2009-10
15%
10%
5%
0%
-5%
-10%
-15%
-20%
-19%
+12%+13%
Decrease in Marginal
Costs
Increase in Headcount
Enrollment
Increase in Full-Time
Equivalent Enrollment
* Remaining average Pell
Grant Award after key attendance costs of Tuition &
Fees plus Books & Supplies are deducted from average
Academic Year Pell Award.

MORE STUDENTS EARN MORE CREDITS:
New Pell investments produces declining net marginal cost* so that more low-income students can attend Iowa community colleges,
Summer 2008-09 to Summer 2009-10
20%
10%
0%
-10%
-20%
-30%
-40%
-35%
+12% +19%
Decrease in
Marginal Costs
Increase in
Headcount
Enrollment
Increase in Full-
Time Equivalent
Enrollment
* Remaining average Pell
Grant Award after key attendance costs of Tuition &
Fees plus Books & Supplies are deducted from average
Academic Year Pell Award.

4
focus   on   gender,   part ‐ and   full ‐ time   students

Kansas Community and Technical Colleges:
Survey Respondents
17 community colleges in Kansas were analyzed in the study. They enroll 89% of all
Kansas community college students .
Source: Mensel, R.F., Katsinas, S.G., Midkiff, R.C., Friedel, J.N., Hagedorn, L.S., and D’Amico, M.M. (February 10, 2012). The Impact of Pell Grants at Kansas
Community Colleges – Technical Report. Tuscaloosa, Alabama: Education Policy Center, The University of Alabama, in cooperation with Iowa State University and the University of North Carolina at Charlotte.

A Dramatic Increase in Pell Grant Dollars at
Kansas Community Colleges, Fall 2008 to Fall 2010
50
40
30
20
10
0
Fall 2008 Fall 2009 Fall 2010
Source: Mensel, R.F., Katsinas, S.G., Midkiff, R.C., Friedel, J.N., Hagedorn, L.S., and D’Amico, M.M. (February 10, 2012). The Impact of Pell Grants at Kansas
Community Colleges – Technical Report. Tuscaloosa, Alabama: Education Policy Center, The University of Alabama, in cooperation with Iowa State University and the University of North Carolina at Charlotte.

Number of Pell Awards to Needy Students Nearly
Doubles at Kansas Community Colleges,
Fall 2008 to Fall 2010
25,000
20,000
15,000
10,000
5,000
0
Fall 2008 Fall 2009 Fall 2010
Source: Mensel, R.F., Katsinas, S.G., Midkiff, R.C., Friedel, J.N., Hagedorn, L.S., and D’Amico, M.M. (February 10, 2012). The Impact of Pell Grants at Kansas
Community Colleges – Technical Report. Tuscaloosa, Alabama: Education Policy Center, The University of Alabama, in cooperation with Iowa State University and the University of North Carolina at Charlotte.

Net Marginal Costs for Full-Time Students Decreased,
Remained Flat, or Showed Small Increases at
Kansas Community Colleges, Fall 2008 to Fall 2010
Source: Mensel, R.F., Katsinas, S.G., Midkiff, R.C., Friedel, J.N., Hagedorn, L.S., and D’Amico, M.M. (February 10, 2012). The Impact of Pell Grants at Kansas
Community Colleges – Technical Report. Tuscaloosa, Alabama: Education Policy Center, The University of Alabama, in cooperation with Iowa State University and the University of North Carolina at Charlotte.
Note: Marginal costs are remaining average costs after average Pell award is deducted from key attendance costs of Tuition & Fees plus Books & Supplies.

FTE Enrollment Grew by MORE than Headcount
Enrollment at Kansas Community Colleges,
Fall 2008 to Fall 2010
20
15
10
5
12%
16%
The change in FTE enrollment grew by more than the change in unduplicated headcount enrollment, which means that more students took more hours.
0
Change in Unduplicated
Headcount Enrollment
Change in FTE
Enrollment
Source: Mensel, R.F., Katsinas, S.G., Midkiff, R.C., Friedel, J.N., Hagedorn, L.S., and D’Amico, M.M. (February 10, 2012). The Impact of Pell Grants at Kansas
Community Colleges – Technical Report. Tuscaloosa, Alabama: Education Policy Center, The University of Alabama, in cooperation with Iowa State University and the University of North Carolina at Charlotte.

Percentage of Part-Time Enrolled Headcount Students at Kansas Community Colleges, Fall 2010
The smaller the college, the lower the percentage of part-time students enrolled .
(due to higher out-of-pocket non-college related costs of transportation and child care)
Source: Mensel, R.F., Katsinas, S.G., Midkiff, R.C., Friedel, J.N., Hagedorn, L.S., and D’Amico, M.M. (February 10, 2012). The Impact of Pell Grants at Kansas
Community Colleges – Technical Report. Tuscaloosa, Alabama: Education Policy Center, The University of Alabama, in cooperation with Iowa State University and the University of North Carolina at Charlotte.

25000
Pell Awards at Kansas Community Colleges by Gender, Fall 2008, Fall 2009, and Fall 2010
Men Women
20000
15000
13,206
64%
7,513
36%
59% increase in two years
10000
5000
7,791
65%
4,066
35%
10,511
63%
6,011
37%
54% increase in two years
0
Fall 2008 Fall 2009 Fall 2010
Source: Mensel, R.F., Katsinas, S.G., Midkiff, R.C., Friedel, J.N., Hagedorn, L.S., and D’Amico, M.M. (February 10, 2012). The Impact of Pell Grants at Kansas
Community Colleges – Technical Report. Tuscaloosa, Alabama: Education Policy Center, The University of Alabama, in cooperation with Iowa State University and the University of North Carolina at Charlotte.

Percent of Full-Time Equivalent Enrollment Receiving Pell
Grants in Kansas Community Colleges, Fall 2008 to Fall 2010
30
20
10
0
50
40
Fall 2008 Fall 2009
Men Women
Fall 2010
Source: Mensel, R.F., Katsinas, S.G., Midkiff, R.C., Friedel, J.N., Hagedorn, L.S., and D’Amico, M.M. (February 10, 2012). The Impact of Pell Grants at Kansas
Community Colleges – Technical Report. Tuscaloosa, Alabama: Education Policy Center, The University of Alabama, in cooperation with Iowa State University and the University of North Carolina at Charlotte.

Pell Dollars in Kansas Rural and Suburban Community
Colleges, Fall 2008 to Fall 2010
30
25
20
15
10
5
0
Fall 2008 Fall 2009
Rural Suburban
Fall 2010
Source: Mensel, R.F., Katsinas, S.G., Midkiff, R.C., Friedel, J.N., Hagedorn, L.S., and D’Amico, M.M. (February 10, 2012). The Impact of Pell Grants at Kansas
Community Colleges – Technical Report. Tuscaloosa, Alabama: Education Policy Center, The University of Alabama, in cooperation with Iowa State University and the University of North Carolina at Charlotte.

Percent Full-Time Equivalent Enrollment Receiving Pell Grants at Kansas Rural and Suburban Community Colleges,
Fall 2008 to Fall 2010
50
40
30
20
10
0
Fall 2008 Fall 2009
Rural Suburban
Fall 2010
Source: Mensel, R.F., Katsinas, S.G., Midkiff, R.C., Friedel, J.N., Hagedorn, L.S., and D’Amico, M.M. (February 10, 2012). The Impact of Pell Grants at Kansas
Community Colleges – Technical Report. Tuscaloosa, Alabama: Education Policy Center, The University of Alabama, in cooperation with Iowa State University and the University of North Carolina at Charlotte.

The Change in Pell Awardees as a Percentage of Increased
Unduplicated Enrollment is exceeded by growth in Pell as a
Percentage of FTE at both Rural and Suburban Colleges,
Fall 2008 - 2010
20
15
10
5
0
Change in Unduplicated
Headcount Enrollment
Change in FTE Enrollment
Rural Suburban
Source: Mensel, R.F., Katsinas, S.G., Midkiff, R.C., Friedel, J.N., Hagedorn, L.S., and D’Amico, M.M. (February 10, 2012). The Impact of Pell Grants at Kansas
Community Colleges – Technical Report. Tuscaloosa, Alabama: Education Policy Center, The University of Alabama, in cooperation with Iowa State University and the University of North Carolina at Charlotte.

Pell Dollars and Pell Grants Awarded at
Garden City Community College from Fall 2008 to Fall 2010
Pell Dollars, in Millions Pell Awards, in Numbers
$1.80
$1.60
$1.40
$1.20
$1.00
$0.80
$0.60
$0.40
$0.20
$-
$0.93
$1.62
800
700
600
500
400
300
200
100
0
538
748
Fall 2008 Fall 2010 Fall 2008 Fall 2010
Source: Mensel, R.F., Katsinas, S.G., Midkiff, R.C., Friedel, J.N., Hagedorn, L.S., and D’Amico, M.M. (February 10, 2012). The Impact of Pell Grants at Kansas
Community Colleges – Technical Report. Tuscaloosa, Alabama: Education Policy Center, The University of Alabama, in cooperation with Iowa State University and the University of North Carolina at Charlotte.
Note: Data for the dollar value and number of Pell Grants awarded include all full-time and all part-time students.

Change in Enrollment and Marginal Costs for Full-Time Students at Garden City Community College, Fall 2008 to Fall 2010
10%
8%
6%
4%
2%
0%
-2%
-4%
-4%
0%
10%
Change in
Marginal Costs
Change in
Headcount
Enrollment
Change in Full-
Time Equivalent
Enrollment
Source: Mensel, R.F., Katsinas, S.G., Midkiff, R.C., Friedel, J.N., Hagedorn, L.S., and D’Amico, M.M. (February 10, 2012). The Impact of Pell Grants at Kansas
Community Colleges – Technical Report. Tuscaloosa, Alabama: Education Policy Center, The University of Alabama, in cooperation with Iowa State University and the University of North Carolina at Charlotte.
Note: Marginal costs are remaining average costs after average Pell award is deducted from key attendance costs of Tuition & Fees plus Books & Supplies.

1. Community college students (gender, full/part-time) are very sensitive to changes in Pell funding.
2. ARRA's Maintenance of Effort provisions mattered.
Requiring total state spending for higher education in FY09,
FY10 & FY11 to be maintained at FY06 levels (operating budgets for publics plus state financial aid) likely lowered the temptation of states to defund public higher education and raise tuition in double-digits as in past recessions.
3. With the recession, Pell increases came at a great time.
4. Geography matters...a lot.
5. We learn with each study how to better tell the story.
6. This "story" is not shared in a policy-relevant timeframe
CONCLUSION: Pell + ARRA drove enrollment increases; Pell matters more at Rural colleges.

The   Challenge   of   Capacity:   Actual   and   Projected   Traditional
College   Age   Youth   (18   to   24),   1996   through   2025
26,000,000
25,000,000
24,000,000
Since 2000, nearly 3 million
MORE 18-24 year olds
1 million
MORE 18-24 year olds from
2009 to 2012
Projections   STAY high;   they   DO   NOT   include   undocumented   students
23,000,000
22,000,000
21,000,000
20,000,000
19,000,000
ACTUAL numbers
18 ‐ 24   olds
of year
PROJECTED estimates   of
18  ‐ 24   olds year
18,000,000
1996 1998 2000 2002 2004 2006 2008 2010 2012 2014 2016 2018 2020 2022 2024
The   numbers   seeking   access   will   rise   whether   or   not   public   higher   education   institutions   are   funded   to   serve   them!
Data   are   based   upon   live   births   and   deaths   from   USDHHS   and   not   education   statistics
The Education
Policy Center
The University of Alabama

The   Challenge   of   Capacity:    Actual   and   Projected
Young   Adults   (25   to   34)   in   the   US   Population,   2008  ‐ 2025
44,000,000
These   projections   DO   NOT   include   undocumented   students
42,000,000
3   million   MORE young   adults   ages   25   to   34   from   2009   to   2012
40,000,000
38,000,000
36,000,000
34,000,000
PROJECTED   INCREASE of
6   million   MORE young   adults   over   next   16   years
32,000,000
2008 2010 2012 2014 2016 2018 2020
The   numbers   seeking   access   will   rise   whether   or   not   public   higher   education   institutions   are   funded   to   serve   them!
Data   are   based   upon   live   births   and   deaths   from   USDHHS   and   not   education   statistics
2022 2024
The Education
Policy Center
The University of Alabama

Lessons from the 1982 fight
1. Be inclusive. Data to show how Pell helped students by
CD and state were created in 1982. Today, with research on rural higher education issues not a federal or foundation priority, the false argument that Pell is a welfare program for urban Americans may be assumed true if not rebutted.
2. Data should focus on low-income not race & ethnicity.
Pell helps everybody; it belongs to everyone!
3. Students themselves must be involved. In 1982, ACE's
Action Committee matched on-campus PR & lobbying. Students wrote millions of letters; at
SIU, more than 3,000 were written on 1 day.
4. Learn from TRIO example in 1982.
5. "Sometimes, you have to fight the good fight," Mr. Simon often said, knowing that today's loss can be tomorrow's victory.

We have to tell the story better ; potential students are counting on us .
1. As Pell goes, so go America's community college students. If Members of Congress want to community colleges to train traditional-aged and non-traditional young adults for high wage jobs, expand Pell.
2. One focus: How Pell helps key industrial sectors. In
Alabama, Mercedes is spending several billions to add a 3rd shift to build the C class...but the local community college lacks capacity to train local workers for jobs.
Signature businesses can be identified in all 50 states.
3. Transcript analysis capacity is needed by each major
2 & 4-year Carnegie type to document how Pell matters.

"We   must   dare   to   dream…a     society   that   fails   to   dream   great   dreams   will   not   achieve   great   things."
..."Can   anyone   doubt   that
America   will   have   a   lesser   economic,   civic,   and   cultural   future   with   a   lesser   educated   population?
‐‐ Paul   Simon
The Education
Policy Center
The University of Alabama

THANK YOU for the opportunity to share!
Geographic Dimensions of Pell Grants and
Community College Students
29th Annual Conference of the
Student Financial Aid Research Network Conference by
Stephen G. Katsinas, Education Policy Center, The University of Alabama
Janice Nahra Friedel and Linda Serra Hagedorn, Iowa State University
Memphis, Tennessee
June 14, 2012
THANKS for the
OPPORTUNITY