Lawmakers quickly chopped that number down to 3 percent, forcing the state's colleges and universities to made do with less money for salaries and essential services.

This year, higher education officials opted to play hardball.

In his presentation Thursday to the Higher Education Appropriations Subcommittee, Commissioner of Higher Education Richard Kendell brought neither a firm first-tier tuition proposal nor any hint of what college officials might need in second-tier tuition.

Instead, he offered up a new funding plan that calls for 75 percent in public money to a 25 percent student-tuition match.

"The more the state supports higher education, the less increase in tuition for students," Kendell said "We don't know where we will be until we know your recommendation."

A 75/25 match would mean a first-tier tuition rate - beginning fall 2005 - from 3.18 to 3.56 percent. The second-tier tuition could range from a little as 1 percent at some colleges to as much as 14 percent, depending on the Legislature's final budget, he said.

"If all the [state] money ends up going to the road fund, we will have to make some tough choices," Kendell warned lawmakers.

Four years ago, the state Board of Regents began using a two-pronged approach to raise tuition. First-tier tuition - which covers faculty and staff compensation - is an across-the-board tuition rate for all the state's colleges and universities, except Utah College of Applied Technology.

Second-tier tuition was developed so that schools could meet specific campus needs. The second-tier money is supposed to benefit students immediately, perhaps providing money for more instructors, less-crowded classes or more computer labs.

Rep. Susan Lawrence, R-East Millcreek, told Kendell his higher education budget had a long list of "must-haves. If we can't get the money for all these needs, are you going to do all of these things regardless, and students will pay the bills?" she asked.

The operations and maintenance bills have to be paid - if not by legislative appropriation, then college presidents will have to go to other sources, Kendell said.

By way of example, he said, "The institutions are now $72 million in the hole on fuel and power."

Rep. Kory Holdaway, R-Taylorsville, who co-chairs the subcommittee with Sen. Greg Bell, R-Fruit Heights, asked Kendell how much will tuition be if there were no new money for higher education, except for compensation.

"Second-tier tuition will be in the 14 to 16 percent range," Kendell said. "If you [the Legislature] invest in higher education, tuition will be moderate."

sykes@sltrib.com