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Date Available
9-10-2026
Year of Publication
2026
Document Type
Graduate Capstone Project
Degree Name
Master of Public Financial Management
College
Graduate School
Department/School/Program
Public Administration
Faculty
Urton Anderson
Committee Member
Rhonda Trautman
Faculty
Margaret Plattner
Abstract
Kentucky’s public universities provide significant educational, economic, and workforce development benefits to the Commonwealth. However, because these institutions are exempt from local property taxes, questions arise about the fiscal effects on the communities that host them. While the benefits generated by universities extend beyond municipal boundaries, the fiscal effects of tax-exempt property are often concentrated within host communities. As universities expand their campuses and acquire additional property, local governments may face increased demands for public services without a corresponding increase in property tax revenue.
This study examines whether Kentucky should adopt a formal statewide framework to address the local fiscal effects of tax-exempt public universities operating under the same statewide tax-exemption policy, given that these universities are located in communities that vary considerably in population, economic conditions, financial capacity, and reliance on property taxes. Consequently, the local impacts of tax-exempt university property may differ significantly across host communities. Using a comparative case study approach supported by descriptive quantitative data, this research evaluates the relationship between tax-exempt public universities and local financial capacity in Richmond, Frankfort, Morehead, Murray, Highland Heights, Lexington, Louisville, and Bowling Green. The study also examines policy approaches used in other jurisdictions, including Boston’s PILOT program and Connecticut’s state-supported compensation framework.
The findings show that Kentucky’s current decentralized approach does not provide a consistent way to evaluate or respond to uneven local fiscal effects across university host communities. Ultimately, the study seeks to identify policy options that balance the fiscal concerns of host communities with the substantial educational, economic, and social benefits generated by Kentucky’s public universities. The analysis indicates substantial variation in the relative size of public universities compared to their host communities, suggesting that the local fiscal effects of tax-exempt university property may not be evenly distributed across Kentucky. These findings provide support for examining whether a more structured statewide approach may be warranted for communities experiencing disproportionately visible fiscal effects.
Recommended Citation
Shields, Trina and Baumstark, Catie, "Should Kentucky Adopt a Formal Statewide Framework to Address the Local Fiscal Effects of Tax-Exempt Public Universities on Host Communities?" (2026). MPA/MPP/MPFM Capstone Projects. 490.
https://uknowledge.uky.edu/mpampp_etds/490
