“There is a real tension between serving the public needs, on one hand, and doing what they have to do to ensure that their institution can compete in the marketplace,” said Jane Wellman, executive director of the Delta Cost Project.

Ms. Wellman is particularly critical of the trend toward splitting flagships like the University of Wisconsin-Madison, which generally have the biggest research grants, the most alumni support, the best faculty and students and the most political clout, from the rest of the state’s higher education system.

“Madison seceding from the union sends the message, ‘We’re not like you, we’re better than you, we’re going to cut our own deal,’ ” she said. “They may be better and different, but they still have a responsibility to assert a leadership role rather than cut their own deal.”

Moves to give the flagship special treatment raise real tensions especially where, as in Wisconsin and Oregon, the state system is itself seeking greater flexibility.

George Pernsteiner, chancellor of the Oregon University System, said it had built support for pending legislation that would change the system’s status, and most importantly, ensure that tuition income would be used to support the university, and not raided by the state to balance the budget.

But as that legislation moves forward, the president of the University of Oregon is pursuing an unusual effort to have the state issue some $800 million in new bonds, and commit to covering the debt service for 30 years. The university would raise private money to match the bonds, for a $1.6 billion endowment.

“We’ve got a chance to present a model for the rest of the country,” said Richard Lariviere, the university president. “It would provide a reliable source of income.” And once the bonds are retired, the state would no longer need to provide the basic financing for the university.