Higher Education Expenditures

State and Local Backgrounders Homepage

Higher education spending includes expenditures on the operation, maintenance, and construction of public community colleges, universities, and postgraduate institutions such as law and medical schools.1

How much do state and local governments spend on higher education?

In 2017, state and local governments spent $297 billion, or 10 percent of state and local direct general spending, on higher education.2 Higher education was the third-largest source of state and local direct general spending in 2017, roughly equal to spending on health and hospitals.

In 2017, nearly all (88 percent) of higher education spending went toward operational costs, such as instruction, administration, research, libraries, dormitories, cafeterias, and other student or faculty services. The remaining 12 percent was for capital outlays, such as construction and maintenance.

How does state spending differ from local spending and what does the federal government contribute?

State governments spend more of their budgets directly on higher education than localities. In 2017, 18 percent of state direct general spending went to higher education versus 3 percent of local direct general spending. Local spending is typically for community college systems, while state spending goes toward public four-year universities, other state institutions, and state grants given to students.

Overall, 85 percent of higher education direct spending occurred at the state level in 2017. In 19 states, 100 percent of higher education spending occurred at the state level. The only states where local direct spending on higher education exceeded 25 percent in 2017 were California, Florida, Illinois, and Wyoming.

The federal government contributes to higher education mostly by providing financial aid to students.  

How much do tuition and other charges contribute to higher education spending?

The Census data on higher education expenditures include revenue from both government transfers to schools and charges related to higher education, such as tuition, that are paid directly from students to public institutions of higher education. 

In addition to tuition and other instruction-related charges (such as laboratory fees), higher education charges include receipts from dormitories, university cafeterias, and bookstores. In 2017, higher education charges totaled $119 billion and accounted for 40 percent of total state and local higher education expenditures. Tuition plus other instruction-related charges were $91 billion (31 percent) and receipts-related charges were $28 billion (9 percent).

Other services, such as hospitals, also often operate within institutions of higher learning and contribute to higher education revenues. However, these funds are allocated separately within the Census of Governments data. For more on how those revenue streams contribute to higher education, see a separate study of higher education funding from the US Department of Education.

How have higher education expenditures changed over time?

In 1977, state and local governments spent $105 billion on higher education (in 2017 inflation-adjusted dollars). In 2017, they spent $297 billion.

Higher education spending has remained relatively constant as a share of total state and local spending over time. In both 1977 and 2017, 10 percent of direct state and local direct general expenditures went to higher education.

However, the composition of where the funding came from has changed over time. Specifically, higher education charges as a share of total higher education spending grew from 30 percent in 1977 to 40 percent in 2017. Further, tuition alone grew from 19 percent of higher education expenditures in 1977 to 31 percent in 2017. Tuition as a percentage of higher education spending grew in part because state direct appropriations per student declined. That is, state and local spending on higher education increased over the period in large part because tuition payments increased.

How and why does spending differ across states?

State and local governments spent $914 per capita on higher education in 2017.3 Wyoming spent the most per capita on higher education at $1,574, followed by North Dakota and Utah (both $1,474), Delaware ($1,454) and Vermont ($1,430). Among the states, Nevada spent the least on higher education ($504), followed by Florida ($528), Tennessee ($559), and Georgia ($577). The District of Columbia spent $179 because, unlike the 50 states, the city does not have a statewide university system.

Data: View and download each state's per capita spending by spending category

Per capita spending is an incomplete metric because it doesn’t provide any information about a state’s demographics, its policy decisions, administrative procedures, or the choices its residents make. Spending on higher education is mostly driven by the number of students in two- and four- year public universities as well as the cost of college.

For example, California has lots of students and higher payroll and nonpayroll costs (after accounting for tuition and fees), leading to higher spending per capita. Low spending per-capita states, such as New Jersey, have sometimes offset high payroll costs by hiring fewer employees per student or spending less per student on nonpayroll functions.4 They also often have more students enrolled in non-public universities. 

Spending per full-time equivalent student (FTES) can provide a more nuanced picture because it reflects the spending on students who are enrolled in higher education. According to the National Center for Education Statistics, public higher education enrollment has been increasing since 1980.

The United States, on average, spent $28,134 per FTES in two- and four-year public postsecondary institutions in 2017.6 Alaska spent the most, with $49,301 per FTES, followed by Vermont ($44,580), Delaware ($39,861), Wyoming ($39,777), and Connecticut ($39,728). Georgia spent the least, with $18,621 per FTES, followed by Florida ($19,639), Nevada ($19,881), Tennessee ($21,256), and Idaho ($21,374).

While per capita and per FTES numbers are valuable for evaluating state and local spending over time, both miss a valuable distinction in higher education financing: tuition. Once charges and fees are removed from consideration, state and local governments overall spent $16,838 per FTES—down from $28,134 per FTES overall.

States make different decisions regarding how much to charge students and set different tuition rates for in-state versus out-of-state students. For example, Vermont ranks second in FTES spending ($44,580), but it drops to 26th once charges and fees (mainly tuition) are subtracted ($16,173). In contrast, California moves from 32nd place ($27,344) for total per-FTES spending to 12th when tuition is subtracted ($19,299). Thus, because the Census of Governments includes tuition and charges in its calculation of public spending on higher education, readers should be careful in interpreting the overall spending numbers.

Interactive Data Tools

Financing Public Higher Education

State and Local Finance Data: Exploring the Census of Governments

State Fiscal Briefs

What everyone should know about their state’s budget

Further Reading

Tuition and State Appropriations
Sandy Baum, Michael McPherson, Breno Braga, and Sarah Minton (2018)

The Federal-State Higher Education Partnership: How States Manage Their Roles
Matthew Chingos and Sandy Baum (2017)

Declining state expenditures on public universities are in fact driving tuition increases
Sandy Baum, Urban Wire (2015)

Financing Higher Education: The Evolution of State Funding
Sandy Baum and Martha C. Johnson (2015)

Financing Public Education: Variation Across States
Sandy Baum and Martha C. Johnson (2015)

Assessing Fiscal Capacities of States: A Representative Revenue System–Representative Expenditure System Approach, Fiscal Year 2012
Tracy Gordon, Richard Auxier, and John Iselin (2016)

Notes
1 Data are from the census expenditure functions E16, E18, F16, F18, G16, G18, K16, and K18. 

2 Unless otherwise noted, all data are from the US Bureau of the Census, Survey of State and Local Government Finance, 1977–2017, accessed via the Urban-Brookings Tax Policy Center Data Query System, February 4, 2020, http://slfdqs.taxpolicycenter.org. The census recognizes five types of local government in addition to state government: counties, municipalities, townships, special districts (e.g., a water and sewer authority), and school districts. All dates in sections about expenditures reference the fiscal year unless explicitly stated otherwise. 

3 Calculation from the US Bureau of the Census, Survey of State and Local Government Finance, 1977-2016, accessed via the Urban-Brookings Tax Policy Center Data Query System, February 4, 2020, https://slfdqs.taxpolicycenter.org/index.cfm; and National Center for Education Statistics, Digest of Education Statistics, Table 307.20. Full-time-equivalent fall enrollment in degree-granting postsecondary institutions, by control and level of institution and state or jurisdiction: 2000, 2010, and 2015.

For an analysis of components of state and local spending using 2012 data, see the Urban Institute’s interactive tool, “What everyone should know about their state’s budget,” http://apps.urban.org/features/what-drives-state-spending/.

6 Calculations using the US Bureau of the Census, Survey of State and Local Government Finance, 1977-2016, accessed via the Urban-Brookings Tax Policy Center Data Query System, accessed February 2020, https://slfdqs.taxpolicycenter.org/index.cfm; and National Center for Education Statistics, Digest of Education Statistics, Table 307.20. Full-time-equivalent fall enrollment in degree-granting postsecondary institutions, by control and level of institution and state or jurisdiction: 2000, 2010, and 2017.