Washington Update: Neg Reg, Clery Act, and Chevron Decision:

Changing Higher Ed podcast 223 with host Dr. Drumm McNaughton and guest Tom Netting

Table of Contents

Changing Higher Ed podcast 223 – Washington Update: Neg Reg, Clery Act, and Chevron Decision with Tom Netting
Changing Higher Ed Podcast | Drumm McNaughton | The Change Leader

September 3, 2024 · Episode 223

Washington Update: Neg Reg, Clery Act, and Chevron Decision

42 Min · By Dr. Drumm McNaughton

Neg Reg impacts on US higher ed institutions. Key policy changes in Title IX, FAFSA, student loans, and regulatory oversight explained in this Washington Update.

 

Covering FAFSA, Title IX, FSA, IDR, SAVE, NC-SARA, NACIQI, PPA, TRIO, Clery Act, Gainful Employment, Title IV, and Chevron Decision Impacts

Title IX implementation has created a chaotic regulatory environment, with 26 states under injunction and the rest required to implement new rules as of August 1st, 2023. This state-by-state variation, coupled with potential exemptions for certain student groups, forces institutions to navigate multiple, sometimes conflicting policies simultaneously.

The Department of Justice is challenging these injunctions up to the Supreme Court, mirroring legal battles over other higher education policies like the SAVE program for Income-Driven Repayment.

This complex situation exemplifies the broader regulatory challenges facing higher education, as detailed in this Washington Update featuring our frequent guest, Tom Netting, President of TEN Government Strategies. This update aims to provide higher education leadership with an overview of these changes, their context, and their potential impacts.

Program Integrity and Institutional Quality

The Department of Education is currently engaged in a complex process of revising regulations related to program integrity and institutional quality. This process, stemming from the 2023-2024 federal Negotiated Rulemaking (Neg Reg), has resulted in a split approach: some areas are open for comment, while others have been tabled for further review.

 

Department of Education Regulations: Recent Changes and Proposals

Distance and Online Education 

The Department is proposing significant changes to distance education regulations, particularly affecting clock hour programs and attendance requirements. These proposals come in the wake of the COVID-19 pandemic, which saw a massive shift to online learning across the education sector.

One key proposal is to repeal the flexibility granted to clock-hour institutions to provide asynchronous distance education. This change would primarily impact programs measuring in clock hours and gainful employment institutions subject to eligibility criteria. The context here is crucial: during the pandemic, many institutions, including community colleges and for-profit schools, moved to hybrid or fully online models. They proved they could deliver education effectively in these formats.

Now, the Department is considering rolling back some of this flexibility, particularly for a subset of institutions. The implications of this change could be significant. It may create an inequity between clock hour and credit hour institutions, potentially limiting educational access for students who benefit from asynchronous learning, such as working adults. Institutions may need to reconstruct their programs to comply, which could involve substantial administrative and financial burdens.

Another proposed change involves mandatory attendance taking for all online educational programs. This proposal has raised concerns across all sectors of higher education. The American Council on Education, along with many community colleges, has expressed worries about the administrative and fiscal costs of implementation, as well as the potential impact on educational delivery methods.

The Department’s justification for this change appears to be primarily based on the Return of Title IV calculations – determining how much federal aid an institution can retain if a student withdraws. However, this rationale is being questioned by many in the sector who see it as an unnecessary burden that doesn’t necessarily improve educational quality.

TRIO Programs 

The proposed changes to TRIO programs aim to expand access, particularly at the graduate level, and increase the participation of disadvantaged and disabled individuals. This expansion reflects a growing recognition of the need for support services beyond the undergraduate level and for traditionally underserved populations. So far, the response to these changes has been overwhelmingly positive, with 62 supportive comments submitted. This suggests a broad consensus in the higher education community about the value of expanding these support programs.

Return of Title IV Funds for Modular Institutions 

The Department has proposed modifications to the calculation methodology for returning federal student aid in modular programs. These changes have generally been supported as favorable, suggesting they may address longstanding issues or inefficiencies in the current system.

 

Institutional Quality: New Standards and Oversight

Accreditation: NACIQI

The Department had proposed a significant rewrite of accreditation processes, including changes to how the National Advisory Committee on Institutional Quality and Integrity (NACIQI) oversees accreditors. This would have represented a major shift in how institutional quality is assessed and maintained. The decision to table these discussions likely reflects the complexity and contentiousness of the issue. Recent NACIQI meetings have seen increased pressure on accrediting bodies like SACS and HLC, indicating a trend toward more rigorous oversight. The delay in implementing changes suggests that finding a consensus on these issues remains challenging.

State Authorization: NC-SARA

Proposed changes to state authorization, particularly affecting the National Council for State Authorization Reciprocity Agreements (NC-SARA), have been tabled. These proposals included mandating that only state officials could lead NC-SARA, which would significantly alter the leadership structure at both state and national levels. The implications of these changes could be far-reaching for institutions offering distance education across state lines. The delay in implementing these changes provides institutions with more time to prepare, but also prolongs a period of uncertainty.

Cash Management

A proposal to remove books, equipment, and supplies from tuition and fees charged to students in financial aid packaging has been tabled. This change would have significantly altered how institutions package and charge for these items, potentially affecting both institutional finances and student aid calculations. The tabling of this discussion suggests that the Department recognizes the complexity of this issue and its potential impacts on institutional operations and student finances.

 

The Chevron Decision: A New Era of Regulatory Interpretation

The recent overturning of the Chevron doctrine marks a significant shift in how regulations are interpreted and implemented. This decision, which ends over 40 years of precedent, has far-reaching implications for higher education policy.

Under the Chevron doctrine, federal agencies were given significant latitude to interpret ambiguous statutes. This often resulted in extensive regulations being developed from limited statutory language. The new Loper decision, which replaces Chevron, potentially limits this agency’s discretion.

It’s important to note that this change doesn’t automatically negate existing regulations. Instead, it opens the door for legal challenges to these regulations based on the new interpretation standards. This means that many current higher education regulations could potentially be subject to review and legal scrutiny.

Both Republican and Democratic lawmakers have inquired about which regulations might be subject to review under this new interpretation. However, agencies are likely to be cautious in their responses, as identifying potential “weaknesses” in their regulations could invite challenges.

For higher education leaders, this change introduces a new layer of uncertainty into the regulatory framework. It may lead to a period of increased litigation as various stakeholders seek to challenge or reinterpret existing regulations. Institutions should be prepared for potential changes to regulations they have long operated under and should stay informed about any legal challenges that may affect their operations.

 

Title IX Regulations: State-by-State Implementation Challenges

The implementation of new Title IX regulations has become one of the most complex and contentious issues in higher education policy. The current situation has created a patchwork of requirements across the country, presenting significant challenges for institutions.

As of August 2023, 26 states have a blockade or preliminary injunction on implementing the new Title IX regulations. The remaining states were required to implement the changes by August 1st, 2023. This state-by-state variation creates a confusing situation for institutions, particularly those with multiple campuses across different states.

Adding to the complexity, some student groups may be exempt from the new regulations, even in states where implementation is moving forward. This creates a scenario where institutions may need to operate under multiple policies simultaneously, depending on the status of individual students.

The Department of Justice, on behalf of the Department of Education, is challenging these injunctions up to the Supreme Court. This mirrors similar legal challenges to other higher education policies, such as the SAVE program for Income-Driven Repayment.

For institutional leaders, this situation presents several challenges:

  1. Determining which regulations apply in their state and to which students.

  2. Potentially implementing multiple policies to address different student groups.

  3. Navigating the legal uncertainties as court challenges proceed.

  4. Ensuring compliance while the regulatory landscape remains in flux.

The complexity of this situation has led many legal experts to describe it as “chaos.” Institutions are advised to make a “good faith effort” at compliance, recognizing the challenges of the current environment. However, the lack of clear guidance from the Department of Education on navigating these complexities adds another layer of difficulty for institutions.

This situation underscores the importance of staying informed about ongoing legal developments and being prepared to adapt policies quickly as regulations evolve.

 

FAFSA Rollout: Implications for Enrollment and Institutional Planning

The delayed rollout of the Free Application for Federal Student Aid (FAFSA) has had significant impacts on enrollment for Fall 2024, with potential continued effects for 2025. Many institutions have reported enrollment drops of up to 20% due to these delays, highlighting the critical role that timely financial aid information plays in student decision-making.

Looking ahead, the Department of Education has announced a phased rollout for the 2025-2026 FAFSA form:

  1. Initial beta testing with hundreds of volunteer students

  2. Expansion to thousands of students

  3. Full rollout to all institutions and borrowers by December 1st, 2024

This timeline presents several challenges for institutions:

  1. The compressed timeline from beta testing to full rollout (moving from hundreds to thousands to 17 million users in just two months) raises concerns about system stability and potential glitches.

  2. The December 1st target for full availability is significantly later than the traditional October 1st FAFSA release date, compressing the timeframe for financial aid processing and award notifications.

  3. This delay may impact students’ college selection processes and institutions’ ability to provide timely financial aid packages, potentially affecting enrollment decisions for the 2025-2026 academic year.

For institutional leaders, this situation necessitates careful strategic planning:

  1. Develop contingency plans for admissions and financial aid processes that can accommodate delayed FAFSA information.

  2. Consider alternative methods of providing estimated aid information to prospective students to support their decision-making processes.

  3. Prepare for potential shifts in enrollment patterns and last-minute changes as financial aid information becomes available later in the cycle.

  4. Increase communication with prospective and current students about the FAFSA process and timeline to manage expectations and reduce uncertainty.

The FAFSA delays underscore the interconnectedness of federal policy decisions and institutional operations, highlighting the need for flexibility and adaptability in higher education leadership.

 

Enhanced Consumer Information and Transparency: Implications for Institutional Reputation and Compliance

The Department of Education has significantly increased public access to institutional information, particularly regarding Program Participation Agreements (PPAs) and administrative enforcement actions. This push for transparency has important implications for institutional reputation and compliance strategies.

 

Program Participation Agreements (PPAs)

The Department has made PPA status for all Title IV eligible institutions more easily accessible to the public. This includes detailed information on provisionally certified institutions, broken down alphabetically (A-E, F-N, O-S, T-Z).

For institutional leaders, this increased transparency means:

  1. Greater public scrutiny of an institution’s Title IV eligibility status.

  2. Potential reputational impacts for institutions on provisional certification.

  3. The need for clear communication strategies to explain an institution’s status to stakeholders.

Provisional certification can occur for various reasons, including administrative capability issues, financial responsibility concerns, or recent changes in ownership. For instance, for-profit institutions transitioning to non-profit status are often placed on provisional certification for 2-3 years or longer.

 

Administrative Enforcement Actions

The Department now provides a year-by-year breakdown of administrative actions against institutions from 2021 to 2024. This includes:

  1. Access to settlement documents and fine levels

  2. Breakdown of fines by category from 2010 to 2023, including:
    • Clery Act and Drug-Free Schools and Communities Act (Part 86) violations

    • IPEDS reporting violations

    • Other fines

Notable trends in the data include:

  • Wide variation in total imposed fines across years, from a low of $556,000 in 2014 to a high of $79 million in 2016.

  • In 2023, total fines were around $1 million, with $600,000 attributed to Clery Part 86 violations.

For institutional leaders, this data highlights:

  1. The importance of robust compliance programs, particularly for Clery Act and Drug-Free Schools and Communities Act requirements.

  2. The need for accurate and timely IPEDS reporting.

  3. The potential for significant financial penalties for non-compliance.

  4. The importance of maintaining a strong compliance culture across the institution.

This increased transparency also means that institutions’ compliance histories are more accessible to the public, including prospective students, families, and the media. This underscores the importance of not only maintaining compliance but also being prepared to communicate about an institution’s compliance efforts and any past issues.

 

Student Loans: Income-Driven Repayment (IDR)—The SAVE Program and Legal Challenges

As the pause on student loan repayments ends, new challenges are emerging that have implications for both borrowers and institutions. Understanding these challenges is crucial for institutional leaders as they consider student financial health, alumni relations, and potential impacts on future enrollment.

Current repayment statistics paint a complex picture:

  • 53% of borrowers are currently in repayment.

  • Of those in repayment, 13-14% are in $0 payment plans.

  • Over 40% of borrowers not in repayment are more than 90 days delinquent.

These statistics raise several concerns:

  1. The high percentage of borrowers in $0 payment plans questions the effectiveness of current repayment programs in terms of loan repayment and federal fiscal interests.

  2. The significant delinquency rate suggests many borrowers are struggling to transition back into repayment after the long pause.

  3. These challenges could potentially impact institutions through decreased alumni giving, increased scrutiny of student outcomes, and potential future regulations aimed at institutional accountability for student loan repayment rates.

The Department of Education is promoting the SAVE (Saving on a Valuable Education) program as the primary option for borrowers. This program uses IRS consent to streamline payment calculations. However, like previous debt relief proposals, the SAVE program faces ongoing legal challenges.

For institutional leaders, these developments suggest several action items:

  1. Enhance financial literacy programs for current students to better prepare them for loan repayment.

  2. Develop communication strategies to keep recent graduates informed about repayment options and support services.

  3. Monitor the progress of legal challenges to the SAVE program and other repayment initiatives, as the outcomes could affect future students’ borrowing options.

  4. Consider the potential long-term impacts of high student debt and repayment challenges on alumni relations and institutional fundraising efforts.

  5. Stay informed about potential future regulations that might tie institutional eligibility for federal aid programs to graduates’ loan repayment rates.


By staying ahead of these issues, institutions can better support their students and alumni while protecting their own interests.

 

Wrapping Up: Navigating Current Higher Education Policy

The current environment of higher education policy is characterized by rapid change, legal uncertainty, and increasing complexity. For institutional leaders, navigating this labyrinth requires a multifaceted approach:

  1. Stay Informed: Regularly monitor developments in higher education policy, including proposed regulations, legal challenges, and enforcement trends.

  2. Engage in the Process: Participate in public comment periods and policy discussions to ensure your institution’s perspective is considered in regulatory developments.

  3. Prepare for Change: Develop flexible strategies that can adapt to changing regulatory requirements, particularly in areas like distance education, Title IX implementation, and financial aid processing.

  4. Prioritize Compliance: Given the increased transparency of enforcement actions, maintaining robust compliance programs is more important than ever. Pay particular attention to areas with high fine rates, such as the Clery Act and Drug-Free Schools and Communities Act requirements.

  5. Enhance Communication: Develop clear communication strategies to explain your institution’s status, policies, and compliance efforts to stakeholders, including students, families, and the public.

  6. Support Students: In light of ongoing challenges with student loan repayment, consider enhancing financial literacy programs and support services for current students and recent graduates.

  7. Monitor Legal Developments: Stay informed about ongoing legal challenges to various higher education policies, as the outcomes could significantly impact institutional operations.

  8. Plan for Uncertainty: Given the potential for regulatory changes stemming from the Chevron decision, be prepared to reassess and potentially challenge long-standing regulations.

  9. Collaborate: Work with peer institutions and higher education associations to share best practices and advocate for sector interests in policy discussions.

  10. Think Long-Term: Consider how current policy trends might shape the future of higher education and position your institution to thrive in this environment.

By taking a proactive and informed approach to these complex policy issues, institutional leaders can better navigate the challenges ahead, ensuring their institutions remain compliant, competitive, and focused on their core educational missions.

 

About Our Podcast Guest

Tom Netting

Having spent all of his professional career devoted to higher education policy oversight and implementation, Tom Netting has an extensive knowledge of the laws and regulations governing all aspects of higher education. His considerable background and experience have afforded him the opportunity to view the development and implementation of federal higher education and workforce development policy in their entirety – including issues related to higher education and workforce development, health care, veteran affairs policies, and the procurement of federal appropriations.

About the Host

Dr. Drumm McNaughton is the founder, CEO, and Principal Consultant at The Change Leader, Inc. A highly sought-after higher education consultant with 20+ years of experience, Dr. McNaughton works with leadership, management, and boards of both U.S. and international institutions. His expertise spans key areas, including accreditation, governance, strategic planning, presidential onboarding, mergers, acquisitions, and strategic alliances. Dr. McNaughton’s approach combines a holistic methodology with a deep understanding of the contemporary and evolving challenges facing higher education institutions worldwide to ensure his clients succeed in their mission.

 

Transcript: Changing Higher Ed Podcast 

Changing Higher Ed podcast with host Dr. Drumm McNaughton and guest Tom Netting, President of TEN Government Strategies

Welcome Back, Tom Netting

Drumm McNaughton: Tom, welcome back to the show.

Tom Netting: Drumm, it’s good to be back with you.

Drumm McNaughton: Good to have you back as well. There’s been quite a lot going on in Washington.

Current Higher Education Issues

Drumm McNaughton: What’s going on in your world?

Tom Netting: what’s not going on in the higher education world these days? so much, Drumm, you know again as we talked about the last time there’s all forms of litigation, some of which we’ll cover at least, and touch on as it relates to higher ed policy in today’s conversation I’m sure. but a lot of new information, even over an August recess when Congress is quiet, certainly the Department of Education is not.

They’ve put out a lot of new information, leading into the rush towards November 1st and the master calendar deadline. We’ve got an open NPRM period for two to three sets of regulations. Again, one or two that we’ll talk about, I’m confident. We’ve got other issues with regards to new public dissemination of information that’s always been embedded with the Department, but is being brought to the fore for consumers and others much more “visibly” is the word I guess I should use, and we do have some, some lingering issues as well that are stuff that we’ve talked about before.

Drumm McNaughton: let’s just jump right in because that’s kind of the way we roll, isn’t it?

Tom Netting: That is the way we roll.

Open Notice of Proposed Rulemaking

Tom Netting: Let me start probably with, if you don’t mind, the current open notice of proposed rulemaking,

Drumm McNaughton: Okay.

Tom Netting: Which is based on the 2023, 2024 federal negotiated rulemaking process. As people will recall, there were two major facets of that. One was student loan debt flexibilities that the Department of Education and the Biden Harris administration were looking for.

That now has gone through the entire process, short of the publication of the final rule. So we’re all awaiting to see what that final rule will look like. We’ve talked in previous discussions about the devil of those details, so I won’t go back over that. The other half is very important.

Program Integrity and Institutional Quality

Tom Netting: It was the program integrity and institutional quality discussions, of which there were six major topics. Three of those topics are now in an open comment period that ends on August 23rd. Three of those issues have been tabled, at the department’s decision, for further review and evaluation. The interesting part is the three that were the most confrontational or the most problematic in terms of trying to reach consensus, are the three that have been tabled for further dialogue. Those included cash management, state authorization, and accreditation. We talked about the major areas under that before, and I’m sure we will be talking about them again in the future. But the three areas that we are looking to respond to potential final regulations include distance education, the TRIO programs, and also some changes to the return of Title IV Fund Program for modular institutions.

Drumm McNaughton: Well, the accreditation piece and the, for lack of a better word, the SARA portion of that, those being tabled are huge.

Tom Netting: They are huge. And again, to your point, state authorization was where the NC-SARA and online reciprocity agreement, determinations and participation, were a huge discussion. Major, major changes being sought by the Department of Education, up to and including the leadership of NC-SARA itself, mandating that only state officials could be the leadership, taking away a lot of the complexion of the individuals leading those entities at the state level and nationally.

Second, like you said, it was a complete and utter rewrite of accreditation, not only the role of the accreditors in their oversight of institutions, but also in NACIQI, the National Advisory Committee on Institutional Quality and Integrities, oversight of the accreditors themselves. NACIQI just had their most recent meeting last week. Everybody was paying attention to see how the entities, the agencies up for review would fare. You’ll recall that SACSs and HLC and others have undergone some pressure and some requests for additional information and the like in the past. So have a number of other accrediting bodies in different areas and groups. So this would be, kind of, taking some of that and moving it forward.

And last but not least, under cash management, one of the huge issues was the proposal to remove books, equipment and supplies from the tuition and fees charged to students in their actual packaging of financial aid and some of the requirements under that.

So yeah, taking those rather confrontational, or rather problematic, from several different viewpoints, while also supported by others, is a big step. the other three do have important things in their own right. I think that, candidly, the TRIO programs and the changes for disadvantaged and disabled individuals to have greater access to TRIO, including at the graduate level, is all good news.

I haven’t seen any of the 62 responses that have been submitted for that comment yet be negative and, in fact, certainly are being very positive. Similarly, the changes on return of Title IV funds, R2 T4 in our world of akronese, has also been widely just supported as favorable changes to the calculation methodology that are helpful.

Distance Education and Attendance Requirements

Tom Netting: Where there is some dispute, or where there is some anguish to be sure, is under the distance education proposals, and in particular, the requirements that would repeal the flexibility granted for clock hour institutions to provide asynchronous distance education as part of their delivery modalities. And also a requirement that states that all institutions participating in distance education and or correspondence schools are required to take attendance.

Drumm McNaughton: that’s interesting, to me anyway, because the whole purpose, and the benefit of distance education, online education, is the asynchronous component. It allows people to work and still be going to school at the same time. Whereas if you have to attend class, whether it be in person or online, that takes away that flexibility and it really hurts the working adult.

Tom Netting: it does, but again, I want to caution everybody, this is for programs that measure in clock hour, not institutional programs that measure in credit hour. So that basically exempts already, Drumm, a lot of the programs and a lot of the institutions offering those programs from potential risk associated with this.

You’re absolutely right. And that’s one of many arguments or concerns that are being expressed in those comments. The fact that there is institutional inequity in terms of delivery of the modality from clock hour versus credit hour, and also concerns about the fact that this negatively impacts students, like you said, that are looking for the delivery of education on their terms. And we know more and more that that is what many, many students are looking for as they look to pursue portions of, or all of their post secondary education. There also is an administrative side to this with the potential for having to see if you can take the courses that you have turned to be Asynchronous, as well as synchronous, and many of them are blended, and reconstruct the programs in order for them to continue.

Drumm McNaughton: Well, one of the things that most accreditors, not all, but most of them do is, with online, they require you to do a clock hour measurement. How much time do students put in reading the assignment? How much writing, how much they do in discussion and measuring all those. So whether it’s credit hours hours, it basically is boiling down, in large part, to clock hours.

How do you justify a course being three credit hours?

Tom Netting: Well, keep in mind, there’s clock to credit hour conversions for two separate and distinct reasons. There’s clock to credit hour conversion from an academic standpoint that looks at what that conversion rate is for academic purposes. Then you’ve got your own separate set of requirements for the delivery and administration of student financial aid and determining what a week of instructional time looks like and how that is delivered. It is that which the Department is looking to adjust or determine, and there are some institutions and some programs that are only measured in clock hours, and this is under the gainful employment rule, yet again. If you are a gainful employment institution, subject to the eligibility criterion, and you have programs that measure in clock hour, and here’s the specific things that makes this and again, you have to provide the education in the form of credit hour programs and only to be eligible for asynchronous.

Drumm McNaughton: Okay. Well, that makes more sense. Obviously showing my ignorance on

Tom Netting: again, Drumm, these are highly technical issues and it’s easy to sometimes get lost in those weeds. the devil of these details are important, and again, you’ve got institutions, certainly including community colleges, as well as the private for profit sector and others, that are saying, “hey, we moved to this modality as a portion of, or heavily involved because of the pandemic. We went to hybrid models in some instances and all fully online, delivery in others”. And they proved that they could do it, and now the Department for a subset of the community is asking them to reverse course and they’re not really showing any strong indication as to why, other than you didn’t have it prior to the pandemic and we’re concerned about the delivery and the quality of educational delivery as a result

Drumm McNaughton: And I think this is probably a good place to segue into the Chevron decision because,

Tom Netting: Well, hold on. Let’s talk a little bit about the attendance taking before we go. Let’s stick to the other half and then i’ll let you go to Chevron and all of the discussion there. Again, Drumm, it’s important because the taking of attendance requirement for online educational programs, all of them, is something that I’m seeing in the responses to that NPRM that are being queried, and certainly expressed concerns, by all sectors of the higher education community, the American Council on Education, throughout the negotiated rulemaking. Many, many, many of the community colleges have weighed in, both from an instructor level, as well as from broader organizational institutional levels, expressing concern about how they’re going to have to adapt to do that based on their current educational delivery.

The concerns about the administrative cost and fiscal cost associated with making those transitions to adapt and seeking a real justification as to why. I can tell you the why from a Department standpoint is based on return a Title IV, and once again if individuals unfortunately withdraw, determining how much federal student financial aid the institution is allowed to keep from the student and how much goes back to the federal government. And also what the impact is still on quality of education.

Some people still haven’t quite gotten to the comfort level of all of these modalities, whether it be bricks and mortar, whether it be hybrid, or whether it be fully online, having very comparable delivery systems and values as it goes through.

Drumm McNaughton: My head’s spinning.

Tom Netting: And you’re involved in distance ed all the time, you know the quality that it provides. Some people are leery and want some more safeguards and some more protections. I’m not saying whether that’s right or wrong, but it does, once again, create a disparity and confusion, if not outright chaos in some respects, and when we talk about Title IX later, we’ll definitely get to chaos.

But these are things that institutions are striving very hard to try and implement, but do it correctly and in compliance with major holes still in the way in which to go about it, or concerns about it being implemented, vis a vis the NPRMs that are open right now.

Drumm McNaughton: So again, my head is still spinning.

Tom Netting: Sorry,

Chevron Decision and Its Implications

Drumm McNaughton: So let’s get to the Chevron decision because the Chevron decision talks about how there is departmental overreach, that they are interpreting the regulations that are passed by Congress and people don’t like this,

Tom Netting: Hold on. Statute developed by Congress. Regulations interpreting that statute developed by the agencies. And that’s where it comes to two quick defining tests for the purposes of the Chevron doctrine that was in place for over 40 plus years. The first part about it was giving any agency where there is ambiguity in the statute, the ability to interpret that. The second part is whether or not, as part of the latitude or the flexibility of those ambiguities, the Department’s expertise, whatever agency that is, is right and appropriate to make changes or to make modifications. Under the Chevron document, there was a pretty long runway for agencies to do interpretations and to make decisions of taking a couple of lines or one or two lines in statute and turning them into, quite honestly, pages and pages and pages of regulation.

A lot of people have always said that that seems a little bit of an overreach. Well, with the Chevron case now being overturned, there is a change in the process of what the agencies are able to do. One of the things that I want to point out to all of your listeners is that this doesn’t simply negate or eliminate all of the past 40 years of regulatory development. There is the right, now, to review all of those and potentially challenge them in the courts of law to see whether or not there is or isn’t ambiguity and whether or not expertise provides the ability for interpretation or not. But one of the things I think a lot of people are missing here, Drumm, is the fact that you still are going to have to take the existing regulations, take them to court and challenge them on the new interpretation in order to potentially bring about change. It’s not just an overnight flip of the switch, pardon those, two sets of unlike but, melded comments on my part. But it is an important issue, further confusing it, again because nothing can be simple. There is other doctrine out there called the Skidmore Decision and that plays into other aspects of these assessments and the flexibilities that are given or not.

There are some people that are questioning, one is more for the courts and one is more for the agencies, so how do those interact and interplay? Many questions new to everybody, so a lot of the outcome of this the chapters are not yet written

Drumm McNaughton: I’m not familiar with the Skidmore Doctrine. What is that?

Tom Netting: Like I said, and again I’m no attorney and I don’t have all of the devil of the details. I have had a cursory review and had some people explain it to me. Again the dividing line is between the court’s eligibility to interpret on its own, which is Skidmore and the ability for challenges to be brought forward which is now the Loper decision taking over Chevron.

So again, one is the court’s ability to potentially do it. The other is the more traditional way, which is to challenge it through a plaintiff, against the agency and trying to see if there are issues with regard to the regulations, whether that be arbitrary and capricious, whether that be a number of other different challenges, but one of the major litmus test always is whether or not it’s arbitrary and capricious and causes harm beyond that which should be intended.

Drumm McNaughton: It sounds like the two of those will work hand in glove.

Tom Netting: Well again, that’s one of the questions, is how well will they? Or to what degree do they? Or are they at risk, or opposition to one another? I think you’re going to, again, see a lot of interpretive papers and other things written as we continue to go through this. One thing to keep in mind is while all this is going on, people are still inquiring. Republicans in both the House and the Senate have asked, as well as Democrats, what portions of the regulations could be subject to review, at the very least if not changes, under this change in philosophy? And agencies are probably not going to be quick to respond to those lest they’re basically showing potential, quote unquote, weaknesses or differentiations that they then could be challenged on and have vulnerability to. But, you’re going to see a lot of things starting to be questioned again or reviewed that in many cases , no matter what agency you’re talking about, could go through a review and see whether or not it withstands the new doctrine.

The Latest in Title IX Regulations and Legal Challenges

Drumm McNaughton: And speaking of reviews, there is Title IX.

Tom Netting: Yes, there is.

Drumm McNaughton: Do we even want to go there?

Tom Netting: I think it’s important to go there.

Drumm McNaughton: I agree.

Tom Netting: We’ve got a split country yet again. 26 states have a blockade or a preliminary injunction on implementing the new Title IX regulations. We have the other half of those states that are, and should have had, institutions implementing those changes by August 1st, the beginning of this month. But you have a number of, what I call, ripple effects. You have in some of these litigations, other named groups of student bodies that, number one, you’re hard pressed to find who is part of those entities or groups. And then, where are they located? Because even if they’re located in a state that says that the new regs should have been implemented August 1st, they are exempt. Or they are a protected class. I don’t know how institutions are going to be able to find all of that information within their institutions. And we’re talking the major universities here.

In the state of Michigan, a state that is not having the block or the injunction. But there’s a lot of these groups for individuals that are going to Michigan State, University of Michigan, Ohio State, and many other schools in those implementable, sorry, it’s not even really a word, those states that are required or would have been required to do this, have to then do a deeper dive without a lot of support to try and make sure they’re complying

Drumm McNaughton: And then you’ve got the states, schools in Texas and Florida and others that have basically blocked the implementation.

Tom Netting: Well, and that’s part that’s because of the litigation and we now stand at a point where The Department of Justice, on the path of the Department of Education, is carrying this all the way up to the Supreme Court. Similar with the SAVE program, which is the Income Driven Repayment Loan program. So you’re seeing a lot of different higher ed policy working its way all the way up to the largest and the most authoritative court in the land.

Drumm McNaughton: Who knows? Who knows where it’s all going to go?

Tom Netting: Now here’s the deal, Drumm, and here’s where we empathize with all institutions. One would have hoped, or would have thought, that based on some of these decisions by the courts to accept the preliminary injunctions for either classes of students or the state in general, that maybe the department would have put the brakes on the entire implementation.

They’ve done it for other regulations. When the courts issue a preliminary injunction, they come out and say, like with the 150 percent rule for institutions required to do licensure and certification at the level of the state mandates, four o’clock hour programs yet again. When courts determined that was going to be placed on hold, the Department said, we’ll do it across the country, not just in the state of Texas. There was hope that to alleviate some of this conflict that the department may do the same thing. They have not done that for Title IX. And I think, again, a lot of this comes to political positioning and belief structures. They don’t want to stop the revisions from the Trump administration to the Biden administration, and you see them fighting it all the way up to the Supreme Court, based on the, despair, to the two sets of decisions to make a determination. So, this one is nothing short of chaos, is the word that I hear interestingly enough, the attorneys using. They don’t know how to guide the institutions on complying any more than anybody else does.

Drumm McNaughton: Yeah, it’s, it is a mess.

Tom Netting: It is, and in all seriousness, and again, this is not a tongue in cheek statement, this one is a huge administrative issue, but it’s also a student issue as well. They’re coming back to school in a week or two. What policies are you gonna be under if, heaven forbid, something starts to happen early in the upcoming fall semester? Do you have to use two different policies, and do you even know how to apply those policies to which students? No

Drumm McNaughton: I don’t think they know. It’s going to depend very much on the state that you’re in as well as your previous experience with Title IX.

Tom Netting: Correct. And one of the other things that I hope, you haven’t heard this term in a while with regard to the regulations, but there was a time in the early 2000s probably into the middle of the second decade, where the term “a good faith effort” was a part of a number of the regulations. And it was, look, if you’re trying, and you’re trying to do your dead level best, and it can be shown that you’re trying to do that, it doesn’t absolve you of noncompliance or your sins as it were, but it does play into the determination of the level of potential action and course of action by the Department.

I have to believe or certainly I have to hope that maybe with something this chaotic this confusing and problematic for a number of different reasons that some latitude and some relief might be given as this is starting to be reviewed and evaluated.

FAFSA Rollout for Fall 2024 and Enrollment Impact

Drumm McNaughton: I certainly hope so.

Drumm McNaughton: Moving right along, I am hearing from a number of clients that the FAFSA rollout has really impacted their enrollment for Fall 2024. And given the recent statements coming out of the Department, it might do the same thing for 2025.

Tom Netting: Unfortunately, it is assured that it’s going to do the same for 2024/ 2025. On August 7th the Department made an announcement, Secretary Cardona made it and shared with all the communities, that there is going to be a phased rollout of the 2025 2026 FAFSA form. Normally, and in a regular year, October 1st, if not before, everybody had the FAFSA. The form was, basically baked and cooked. Everybody had it, including the borrowers, to fill it out, to then submit it to the institutions. The institutions had it to then make determinations of packaging and awarding, in order to give the students and their families the ability to determine what their acceptance is, where they were choosing to go based on the information available. And so on the process went.

Well, last year or this year that didn’t work so well. We didn’t get FAFSA forms until the middle of, depending on how you are talking to her, arguing January/February, or March/April. So again, I won’t get into all of those frustrations, but know that they are certainly out there and they were certainly real across all sectors of the higher education community. Well, on the 7th, Mr. Cardona and the department put out a notice to all institutions expressing the fact that they are going to do this rollout, as I alluded to, where what they’re hoping to do is take and do a beta test with an undefined group of volunteer students, and I’m hoping institutions as well, across the spectrum to bring hundreds of students, in their words, through the process, review and evaluate, seek information, and then open it up to, in their words, to quote thousands of students. And then by on or before December 1st, they state, open it up to all institutions and all borrowers by December 1st. Keep in mind, that’s going from hundreds to thousands to 17 million in the course of two months.

Drumm McNaughton: Good luck.

Tom Netting: It is already being questioned, but look, everybody is hoping that we can make it happen. Because again, this impacts the students, it impacts the institutions, it impacts the entire process.

Drumm McNaughton: Yeah, it’s very difficult. Like I say, I know of a number of institutions whose enrollment has dropped by 20 percent because of FAFSA for this year.

Tom Netting: again, I agree. the decision-making process was held hostage. Because the students and the families, on behalf of the borrower, on behalf of the student, didn’t have the information to make an informed decision. So, everything from, early acceptance or early submissions, To the regular process and then, Drew, think about it.

when individuals chose to go to another institution, you had people on hold for the standby list that were strung out into a long time in the process. And let’s be honest, there were a lot of individuals that threw up their hands and said, I may go a different direction. And again, by no fault of the institution here.

And I’m also going to say, to be very clear, not necessarily by any sole, meaning individual only, part of the department. There were a lot of, there has been and continues to be a lot of work around, around the development and implementation of this. The FASFA Simplification Act was, A major change in the interpretations of both Pell eligibility and the definitions, as well as other information.

There was a lot there to undertake, but the timing and, candidly, the lack of communication, Or the, I dare say, misinformation that they kept promising it was coming and then to have it fall flat a couple of times has not invoked a great deal of confidence leading into the next year. And I hope that doesn’t Have me, no longer able to talk to my friends and colleagues over the department because I do have a great deal of faith and confidence in all the efforts they put in.

But look, this has been a problem and the fact that it’s potentially delayed and going to be a problem for a second year is Not a happy thing.

Drumm McNaughton: Not a bit. Last thing.

Consumer Information and Administrative Enforcement

Drumm McNaughton: major announcement for consumer information on web pages of the department.

Tom Netting: yeah, there and I’ll add one other thing after this as well the new GOA study on borrowers and where things stand with regard to repayment, looking all looking to January 1 of 2024 And a lot of the details on that but to your point and to the issue that you brought up Yes, the department of education actually this week Put out notice to all institutions that they were enhancing facets of the FSA website to include a great deal more information with regard to, Program Participation Agreements, those are the PPAs in our world of acronyms, and Provisional PPAs, PP, PPP.

that are the major focal point of the accreditors, the states, and let’s be honest, the institutions, because that’s your paper that shows that you are Title IV eligible, and if any, what restrictions you have. I’m oversimplifying it, but for your audience, that gives more than enough. in the past, when that information was sought by individuals, you really had to dig in mind for it.

the department has brought it front and center. Not only do you have very easy access and eligibility to the PPA status for all Title IV eligible institutions at your fingertips, but you also have access to the PPA, the provisionally Certify, approved programs, institutions. And that can be based on a number of things.

Program from administrative capability and financial responsibility. Changes of ownership are a major trigger that puts institutions on provisional program participation. Think in terms of a number of the for profit institutions. That’s have sought in the past decade or so for transition from for profit to nonprofit status.

Those institutions are now put on a slow roll. It’s not a quick switch. They’re still required to meet the proprietary requirements for a period of 2 to 3 years or longer. under provisional certification. So it’s greater scrutiny and an eye is placed on it, but it’s also on a number of other institutions and other types of institutions.

Well, once again, you can go to the department’s website and not find by school name broken down into subcategories of A through E, F through N, O through S and T through Z of the institutions that are on provisional certification or provisional participation. That’s a lot of, interesting information, both for the good and potentially, I can see other individuals, scrutinizing that in a way that could be a scarlet letter for schools, whether warranted or not. I hope that there isn’t much of the latter, but, we love our list and we love our calculations and computations. Going one step further, And this is where I think that some of that scarlet letter may occur is they also at the department now have administrative enforcement actions by year for all institutions.

And again, with a quick touch of a button from 2021, 2022, 2023, or 2024, you can click a drop down and see all of the institutions that were fined and had actions taken against them by the department. Across all sectors of higher education, across all types of institutions of higher education, and see the settlement documents, the level of fines, and other information that’s out there.

What is interesting is part of the release of this information, the department highlighted, going from 2010 all the way to 2023, three categories of fines. They actually broke out one going back to Title IX, but a different, different varying aspects. Of Title IX and Clery, one major category was Clery Part 86 fines.

That’s the alcohol and drug compliance requirements for all institutions of higher education to do. And you will see in the breakdowns by year, by types of institutions, that one area is a bigger hot button for institutions of higher education than one might think. The very nature of the fact that they put it as a separate line item in this chart of the fines is worth noting.

IPEDS fines. Again, that’s the reporting by the institutions back to the department, and then other fines. And again, the other fines can be a number of different things where you get into misrepresentation and a lot of other concerns. As you look at this information, what is intriguing to me, Drumm, because again, you know how I like to look at data.

If you look at the total imposed fines for all of these, we go from high water marks in 2016 of 79 million. To thresholds at the low point in the year of 2014 of 556, 000.

Drumm McNaughton: Wow. That’s a big delta.

Tom Netting: Yeah, that’s what, one hell of a bell shaped curve going back to my statistics of class. and the, those are the outer ends of that bell shaped curve. Interestingly enough, this year, 2023, the most recent year where, for which all data is available is sitting at around 1 million and of note.

600, 600, 000 of that is once again that Cleary Part 86 violation. So if anybody is listening and paying attention at this point, review your Cleary Part 86 compliance, please, because this is certainly an area where the department is showing a considerable amount of weakness across all spectrums of higher education and in need of review.

They also have done what they’ve done in the past. Since time immemorial the top 10 audit findings and things of that nature. It’s one of the 10 sessions I always attend whether it be in prior years in person or now virtually at the FSA conference in December Again, just to see what the hot buttons are and see where obviously there are weaknesses that I can take back to clients or communities And say hey guys pay attention to this.

Repayment Challenges and SAVE Program

Tom Netting: So Yeah, that’s a lot of important information very briefly The other thing I wanted to stress and emphasize was At the request of the Republican leadership on the education committees, both Ranking Member Cassidy from Louisiana in the Health Committee in the Senate, and Dr. Fox, the Chairwoman of the House Education Committee, Education and Workforce Committee, they had requested of the department information on the transition back into repayment and the resumption of the repayment process post pandemic and the, the protection phase, there is a great deal of information that is contained in the report that the GOA has just recently released to the public.

They had a congressional briefing back in June. they’ve had subsequent conversations, since then, but the actual report and the publication date for the general public was July 29th of, just a couple of weeks ago, but now it’s open to the public. They even include the actual documents that they presented to the department, to the congressional offices and staff members.

and there’s a lot of information to be gleaned there. interestingly enough, breakdown of borrowers in repayment That is at 53% But if you look at the devil of those details of that 53%, 13 to 14 percent of them are in repayment programs where the actual payment is zero. So is that really protecting the federal fiscal interest?

There are people that are inquiring about that. There are a significant number of borrowers that are not in repayment and of that class of individuals, over 40%. Two thirds almost three quarters of them are more than 90 days delinquent in their repayment process This is showing and bringing to light some of the concerns that institutions and candidly Capitol Hill and even the department we’re concerned about which is This transition is not going to necessarily be easy and fluid.

Try, as we all might, to bring individuals back into repayment. Look, let’s be honest. For three years, this was off of everybody, every borrower’s radar.

Drumm McNaughton: Yeah.

Tom Netting: And whether it’s budgeting, whether it’s just lack of focus, or any one of a number of other different challenges or issues, Not everybody is coming back to the process as quickly as certainly people had hoped.

Drumm McNaughton: it’s very challenging when you’ve had a three year hiatus. And then I have to come back, especially given the job situation and everything else. It just personally, I wish higher ed was free in this country, but it isn’t.

Tom Netting: And to that point, also a number of things that have been done to try and provide relief in the form of repayment have come in the form of the various income driven and income contingent repayment programs. The, Republicans asked for an update on the SAVE program, the primary, program that they have promoted for borrowers to consider and opt into.

they have not had the receptivity, even with IRS consent, so that the department could make that process much easier. From all of the borrowers are candidly, I think as many as the administration and the department and others had hoped there’s data on all of that as well Again, bringing forward litigation we’re questioning yet again all the way up to the Supreme Court whether the SAVE Program is in fact legal So while you’ve got all of these individuals enrolling and IRS consent being a way to provide easier access to the calculation and the ability to determine what the payment is from zero to whatever.

that’s being challenged once again, too, similar to the way the challenge took place over providing debt relief or cancellation, previously in this administration. So again, like you said, not a lot going on in DC at all.

Drumm McNaughton: No, not a bit.

Closing Remarks

Drumm McNaughton: So as always, Tom, it’s been fascinating having you on getting the update. We’ll do this again in the near future.

Tom Netting: I hope that I hope I’ve earned my keep with you and certainly enjoy doing these Drumm and happy to do them anytime. very much appreciate all that you’re doing to support and get the word out. I think you know that’s one of my compulsions as well. So thank you for providing me the, the opportunity to do that.

Drumm McNaughton: my pleasure. My brother, you take care. good seeing you again.

Tom Netting: You too.

 

 

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