I was pretty interested in the recent vote to fund the construction of a new Memorial Union on the campus of the University of North Dakota. By a fairly narrow margin, students agreed to fund a new union through a $14 per credit fee that increased 2% per year between 2020 and 2059. The new union, it’s been said, will cost about $80 million and the incentive to do this now is that the existing union, aside from being dated in style and design as well as increasingly inadequate as a center for student life, has about $40 million in “deferred maintenance.” Traditionally, students have carried part of the funding for the union and its maintenance through various fees and had a fair amount of control over how the union worked and funding priorities.
The fee increase has to go through the state legislature and the state board of higher education, and there is some concern that a fee increase to fund the new union will make it more difficult to increase fees for other needs on campus should they arise over the next 40 years (gulp!!). As a result, some legislators with ties to UND have asked around a bit to get a sense whether this is a good priority for UND and whether it should see backing in the legislature.
Because I’ve been thinking a bit about how university budgets work in the age of shifting priorities, I chimed in and my response to a social media post has been banging around in my head for a week or so now. So, I thought I would share a revised version of it here.
First, the more that I thought about it, the more that I’ve come to think that the $40 million in deferred maintenance is a bit of a McGuffin. From what I understand, the formulas used to calculate deferred maintenance are not as simple as saying there are $40 million worth of things needing to be fixed in the existing union. These figures include depreciation and replacement costs that accumulate over time, and, generally, represent the amount of money that needs to be available to accommodate repair and replacement of the physical plant of the building. A new roof, for example, will start to generate deferred maintenance expenses from the moment it is installed as well an HVAC unit or a light bulb. Ideally, the university would start to save money to replace the roof from the moment that the roof is installed, but this is neither realistic or practical.
Of course, if UND spent $40 million, it would reset the deferred maintenance “clock” to zero in the same way that replacing the oil in your car every morning would reset part of your car’s deferred maintenance bill. But this isn’t necessary a rational decision. One of the Wesley College buildings, Sayre Hall, still had the original wood-framed windows from the early 20th century. These would have been racking up deferred maintenances expenses for nearly a century (if we assume a window is designed to last 20 years), but they were never replaced. It stands to reason that, in general, larger, more complex, and more expensive buildings generate deferred maintenance costs more quickly than small ones. I also suspect that the rate of increased for deferred maintenance trails off as buildings get older. In other words, building a new union will only defer (heh heh) the rate of increase for deferred maintenance for a little while before it begins too accumulate again and every bit as quickly (and perhaps even MORE quickly in some nightmarish scenarios) as the old union does.
More than that, if the issue is that the university doesn’t have sufficient saved funds to cover future maintenance on campus, then building a new building will neither make this better or worse. Eliminating deferred maintenance expenses on the two old Wesley College buildings didn’t “save” the university money, it just eliminated potential future expenses. But more to the point, he entire system of budgets on campus create deferred maintenance expenses because saved money is frequently seen by both administrators and the legislature as surplus capital that isn’t being used productively and an example of inefficiency at a public institution to be “punished” by austerity. In fact, the entire federal grant system now works along these lines with less and less money provided to pay for the maintenance and depreciation (indirect costs) of the original investment (direct costs).
In other words, talking about deferred maintenance as a reason to build a building isn’t the language of fiscal responsibility, but the language of austerity. The language of deferred maintenance is meant to make the university look like an irresponsible institution (whether this is the case or not) and often results in funding cuts purported to enforce more efficient operation, but actually designed to penalize public institutions (and to case-build for privatization). For example, the legislature has proposed several times to make resources available but only if a significant part of the funds would go toward deferred maintenance. Covering deferred maintenance costs on campus isn’t always or eve often responsible thing to do. It hurts students.
That being said, there are two compelling reasons – at least to me – for approving the students’ request for funding a new union.
First, there has been a good bit of talk about the union attracting new students as well as vague statements that the union is the “heart” or the “core” of the campus. I don’t disagree with either of these things, but I wonder whether they’re overly narrow. To be clear, I’ll admit to finding NDSU’s union building very attractive and functional. I also have had the privilege of traveling to other campuses quite regularly over the past few years and, in comparison UND’s union, is both limited and outdated.
As an aside, this one of my favorite hallways on campus (it’s not technically in the Union, but rather in Swanson Hall, but is more or less in the Union complex):
Despite this hallway and the appeal of the union to prospective students and visitors, it isn’t really the best argument. What is more compelling to me is the growing awareness that campus buildings play an important role in the coherence of the campus community and this plays a role in academic performance and retention of students. Like many state schools, UND attracts students from a wide range of backgrounds. The presence of spaces on campus that encourage students to socialize and interact is particularly important at a school like ours not because our “posh” or privileged students expect it, but because having appealing and functional spaces on campus levels the playing filed for our diverse student body. This is part of the mission of public universities and something that a well designed campus should accomplish.
We know, for example, that first generation students, minorities, and students from less advantaged backgrounds often struggle to integrate into the campus community and this has an impact on academic performance. They tend to study alone more, they tend to find campus to be an alienating place, and they tend to see their academic work as more separate from their “real life.” With the growth of private dormitories and the continued strength of fraternities and sororities, historically disadvantaged students also have fewer spaces to interact with other students outside the classroom. If they do look to the union as a common space, it’s dingy and spent vibe tends to reinforce these students’ position as marginal. Conversely, an updated and appealing union may well expand the impact of what faculty and students do in the classroom by creating inclusive spaces for informal interaction and to eliminate – for the time being, at least – a real dichotomy of opportunity across our diverse student body. In short, this is not a building that is being built instead of things that would improve academic life on campus is a false dichotomy.
Second, voting “no” on the new union will continue a policy of austerity that involves the withholding of funds – or even support for policies – that do not adhere to a top down strategic vision implemented by legislators, administrators, alumni, and various other stakeholders on campus. This situation and initiative reminds the bosses that students ARE stakeholders, and they have every bit as much the right to shape campus in a respectful and deliberate way as the legislature, the administration, or the faculty. In fact, while I don’t necessarily agree with building of a new union per se, I’d go to the wall to protect students’ rights to raise the funds to build a union. If the state isn’t going to support the university system in a reasonable way, then they lose the right to tell students not to take matters into their own hands.
In the spring of 2018, I taught a class on the UND budget and what was clear was that students DO have strong opinions about the current fiscal situation on campus and do have priorities that administrators, faculty, and legislatures doesn’t always recognize. More than that, they want a voice. This is their voice. And the argument that “only” 2400 students participated and “only” 1300 students wanted the union speaks more to a condescending attitude toward students than a legitimate concern. Over my time at UND, the last 15 years, far less representative groups have raised fees on students or made decisions that directly impact the quality of education and experience. The decision, for example, to eliminate music therapy was made by one administrator. When my class pressed senior administrators to explain the cuts to baseball and Women’s Hockey, their responses were evasive and guarded. It was clear that students were not only uninvolved in these decisions, but would not always be given access to the processes that produced these decisions. In general, student input on most matters of campus policy, curriculum, and administration is often limited to one or two students on committees, at best. That 1000+ plus students made their voices heard in a relatively transparent way through this vote is enough for me to support them.