Final answer:
The strategy described in the question is to make the programs look cheap or free by underestimating costs or spreading them out over several years. This strategy can favor loan programs over grant programs.
Step-by-step explanation:
The strategy described in the question is: Make the programs look cheap or free. This strategy involves underestimating costs or spreading them out over several years to make programs appear inexpensive. It is often used to favor loan programs over grant programs. Additionally, changes in accounting and reporting rules can be used to make programs look more or less expensive.