The University of Wisconsin (UW) System includes 26 campuses and an
extension service that provide instruction, research, and public service
statewide. It is governed by a 17-member Board of Regents and directed
by the UW System President. Its current biennial budget is $7.1 billion.
UW System’s major funding sources are program revenue, which
includes tuition and fees; federal revenue, including funding for
research; and general purpose revenue (GPR) of $1.9 billion in the
2003-05 biennium. That amount reflects a $250.0 million reduction,
primarily in UW System’s general program operations appropriation.
The reduction was $110.0 million in fiscal year (FY) 2003-04, and
$140.0 million in FY 2004-05.
UW System officials are concerned that these GPR reductions have
affected instructional quality and operations. Some legislators, however,
have questioned the efficiency of UW System’s administrative staffing
and service delivery, as well as its non-instructional costs. Therefore, at
the request of the Joint Legislative Audit Committee, we evaluated:
staffing levels throughout UW System, including changes in administrative
staffing from FY 1997-98 through FY 2003-04;
staffing costs, including salaries for classified and unclassified staff
and executive salaries; and
contractual services, including expenditures for administrative
services provided by contractors and amounts spent by individual
UW System institutions.
Our report concludes with a number of options for the Legislature to
consider as it deliberates future state funding and student access to UW
System institutions.
Staffing Levels
The number of permanent employees
on UW System’s payroll increased
by 89.3 full-time equivalent
positions from March 2003 to
March 2004.
In March 2004, UW System employed
31,971.8 permanent,
project, and limited-term employees
(LTEs). To determine how these
staff are employed, we analyzed
the number of positions in various
reporting categories.
We found that in March 2004,
42.3 percent of all filled positions
were held by staff categorized as
Professional Non-faculty. That
category includes researchers and
research assistants, teaching assistants,
program support staff,
financial services and human
resources staff, and those who
provide various student services
and public outreach.
Faculty held 27.7 percent of all
filled positions in March 2004, and
managers 4.4 percent. The remaining
25.6 percent were categorized
as Clerical and Secretarial, Service/
Maintenance, Technical and
Paraprofessional, and Skilled Crafts.
We looked at position growth
since March 1998 and found that
the number of UW System employees
increased in all categories except
Clerical and Secretarial and Service/
Maintenance. However, we
identified more than 500 full-time
equivalent Clerical and Secretarial
positions that were reclassified to
other categories, which helps
explain part of this reduction.
Among positions in the Professional
Non-faculty category, growth was
highest for three job titles: research
assistant, research specialist, and
teaching assistant.
Administrative Positions
To count UW System’s filled administrative
positions, we reviewed job
titles and position descriptions for
employees UW System describes as
its administrative staff, as well as
for staff who have administrative
responsibilities that are accounted
for with other “activity codes” in
UW System’s records.
March 2004 payroll records assign
6.9 percent of UW System’s
31,971.8 filled positions to Institutional
Support, the activity code used
by colleges and universities to report
system-wide management and longrange
planning, fiscal operations,
administrative computing support,
space management, personnel, and
some other functions.
For comparisons with other universities,
UW System often refers to
positions coded as Institutional
Support as its administrative positions.
However, the Institutional
Support activity code does not
include all administrative positions.
We found, for example, that it excludes
program assistants who keep
records, type correspondence, maintain
schedules, and perform similar
administrative functions in various
academic departments throughout
UW System. In UW System’s accounting
records, the activity code
for these staff is Instruction.
Similarly, the activity code for
accountants and grant managers
who ensure compliance with
federal requirements for the use of
funds that support a large percentage
of UW System’s research
activities is Research, because their
work directly supports that activity.
Institutional Support includes only
2,212.6 of UW System’s administrative
positions. We identified
another 5,825.1 positions with
administrative duties that were
coded as other activities, including
Instruction, Research, Public
Service, Academic Support, and
Student Services.
The 8,037.7 administrative positions
we identified represent
25.1 percent of UW System’s filled
positions in March 2004.
Administrative Costs
In FY 2002-03, UW System’s
operating expenditures totaled
$3.3 billion. Three core activities—
instruction, research, and public
serviceaccounted for 54.4 percent
of these expenditures.
Only 5.0 percent were recorded
as Institutional Support. However,
expenditures reported as Institutional
Support do not fully
represent UW System’s expenditures
for administrative salaries,
fringe benefits, and supplies
and services.
We identified an additional
$329.5 million in administrative
expenditures recorded as activities
other than Institutional Support.
When FY 2002-03 expenditures
that are recorded as Institutional
Support are combined with administrative
expenditures recorded
under other activity codes, UW
System’s administrative costs total
$495.0 million. That is nearly three
times the amount recorded as
Institutional Support, and it represents
15.0 percent of UW System’s
$3.3 billion in operating expenditures
for FY 2002-03.
Staffing Costs
We reviewed salaries paid to UW
System employees, nearly threequarters
of whom are unclassified
staff in faculty, research, and
other professional positions. In
March 2004, approximately twothirds
of UW System’s unclassified
staff had annual salaries of less than
$50,000. However, 41.1 percent of
all unclassified staff worked less
than full-time.
In contrast, 12.6 percent of classified
staff worked less than full-time.
Wages have generally increased
less rapidly for classified than for
unclassified employees.
The Legislature has granted UW
System additional flexibility to
ensure faculty and senior executive
salaries remain competitive. Since
November 2001, the Board of
Regents approved more than
$500,000 in salary increases for
20 senior executive positions.
Although salary increases for senior
executive positions were 40 percent
or more since FY 1997-98, salaries
remain below the median for comparable
institutions.
Contractual Services
UW System routinely contracts with
private vendors that provide a wide
range of services, including administrative
services. In FY 2001-02,
12.4 percent of expenditures for
contractual services were coded as
Institutional Support. However,
some expenditures that appear to
be administrative in nature, such as
payments for accounting services
and executive searches, were coded
as Public Service and Academic
Support.
We identified more than $800,000
in administrative expenditures
coded as other activities and
include a recommendation to
improve consistency in accounting
for contractual expenditures.
Matters for Legislative Consideration
We highlight three questions for
the Legislature’s consideration as it
reviews our evaluation, strategic
planning documents developed by
the Board of Regents, and UW
System’s 2005-07 biennial budget
proposal:
To what degree should the
Legislature control the number
and types of positions in UW
System?
How will the relationship
between UW System and the
State be defined in the future?
How will student access to UW
System be maintained?
Recommendations
Our recommendations address the need for UW System to:
provide the Legislature with
complete periodic reports on
executive salaries, fringe benefits,
and cash and noncash
compensation from outside
sources
(p. 50);
provide all UW institutions
with guidance in coding contractual
expenditures in their
accounting records to ensure
accuracy and consistency
(p. 59);
seek statutory changes to
streamline and improve its
position reporting to ensure
accuracy, transparency, and
timeliness in reporting the
number and types of UW
positions
(p. 63); and
report to the Joint Legislative
Audit Committee by February 1,
2005, on its administrative
staffing and service delivery
costs by institution, and provide
specific proposals to
reduce administrative expenditures
and increase operating
efficiencies in the 2005-07
biennium
(p. 69).