without philanthropy"
the "philanthropists" started moving heavily into public universities for the same reasons they spend money anywhere: to corrupt institutions to their purposes, to co-opt, to indoctrinate.
"reach out to those that are not part of the ruling elite" = so what? They have always "reached out" in that sense. They couldn't control the country without "reaching out," through propaganda, corruption & co-option. That includes paying off a fraction of the non-connected -- through high-paying jobs & cushy administrative/research/religious/political/media positions -- to support their agenda.
That doesn't mean their plans for education have anything to do with providing a good education for the masses. Or jobs to make use of education, for that matter.
The Imperial examination was an examination system in Imperial China designed to select the best administrative officials for the state's bureaucracy. This system had a huge influence on both society and culture in Imperial China and was directly responsible for the creation of a class of scholar-bureaucrats irrespective of their family pedigree. Neighboring Asian countries such as Japan, Vietnam and Korea also implemented similar systems to draw in their top national talent.<1><2>
Theoretically, any male adult in China, regardless of his wealth or social status, could become a high-ranking government official by passing the imperial examination, although under some dynasties members of the merchant class were excluded, and it was not until the Song dynasty that a majority of civil servants came into their positions via the examination system. Moreover, since the process of studying for the examination tended to be time-consuming and costly (if tutors were hired), most of the candidates came from the numerically small but relatively wealthy land-owning gentry.
However, there are vast numbers of examples in Chinese history in which individuals moved from a low social status to political prominence through success in imperial examination. In late imperial China, the examination system and associated methods of recruitment to the central bureaucracy were major mechanisms by which the central government captured and held the loyalty of local-level elites. Their loyalty, in turn, ensured the integration of the Chinese state, and countered tendencies toward regional autonomy and the breakup of the centralized system. The examination system distributed its prizes according to provincial and prefectural quotas, which meant that imperial officials were recruited from the whole country, in numbers roughly proportional to each province's population. Elite individuals all over China, even in the disadvantaged peripheral regions, had a chance at succeeding in the examinations and achieving the rewards and emoluments office brought.
http://en.wikipedia.org/wiki/Imperial_examinationAll large societies have similar mechanisms to indoctrinate, corrupt & co-opt non-elites.