Terry Paddon released a report Monday saying the freeze was introduced to boost access to education for students from Newfoundland and Labrador.
But he says one-third of students attending Memorial University is from outside of the province.
Meanwhile, Paddon says expenses at Memorial University have increased 85 per cent in the last nine years.
He says the university needs to develop a long-term plan to address its aging infrastructure.
As of last March, the university had a nearly $330-million deficit, with the pension deficit accounting for $223 million. (VOCM)