Too many topics, too little time

The Chronicle: Daily news: 06/23/2005 — 01:

Require students to pay a fee, equal to 1 percent of the amount they have borrowed, to student-loan guarantee agencies. Under federal law, the agencies are already allowed to charge the fee. But few of the guarantors have done so in recent years, for fear of losing business to competitors that don’t charge the fee.

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why? who does this benefit? not the students….