Every five years, the Tennessee Higher Education Commission completes a master plan that provides guidance on what universities and colleges should be doing for the state. There was just one problem with it. “It wasn’t paid much attention to by the institutions, I think, because there wasn’t much linkage between the state goals and the funding,” said David Wright, chief policy officer for the higher education commission. “The funding was based on (student) enrollment. The formula itself, even for all of its faults, had not been fully funded since the mid ’90s. Nothing was driving institutional behavior other than their own institutional goals or institutional statistics.