Grow for Gold

Rising food prices look set to continue. 

 

Listener: 17 November, 2007. 

 

Keywords: Globalisation & Trade;  

 

The boom in dairy product prices is a consequence partly of overseas drought and partly of Americans using their maize to make biofuels, leaving less for their cows. The same condition is depressing the price of meat as farmers slaughter cattle at increased rates in response to drought and higher feedstock costs. 

 

These changes come on top of a longterm trend that began in the late 1980s, in which food prices seem to have been rising relative to manufacturing prices. There are fluctuations about the trend ratio – called the “food terms of trade” – which make it difficult to interpret the data, but the fall through the 1950s to the 1980s seems to have halted. 

 

This may end one of the difficulties our farmers have faced. Competition (and international protection) saw much of their productivity gain go to foreign consumers in lower (relative) prices, rather than to the farmers in higher profits. The poor return to New Zealand farmers meant that the economy as a whole did not perform well, either. 

 

There are theoretical reasons to suggest that this downward trend may have finished. They are set out in my book Globalisation and the Wealth of Nations, but consider this simplified explanation of why food prices may favour farmers more in the future. 

 

Think about the Chinese peasants who go to work in a factory. Their wages are low, so the price of their product is lower than, say, the US manufactured price, even after the addition of transport costs. Still, the peasants are better off with the factory job, if impoverished by US worker standards, so they want to eat more food of better quality. Yet because they are no longer working the land, less food is being produced. Extra food exports to China push up the international price of food relative to the price of manufacturing, so the food terms of trade rises. 


The more complex story is about the differences between the early and later stages of globalisation. If my model is correct – and it has the merit of being consistent with the historic facts – then we may expect rising relative prices for food for some decades to come, albeit with fluctuations about the trend. Even so, the model of world globalisation is too simple. It considers only two sectors, ignoring other resources (especially energy) and services, which complicate the picture. 

 

The book is the outcome of a three-year project supported by the Royal Society’s Marsden Fund. It was unable to extend the study to the multi-sectoral model because funds were short and the topic was not a priority. As a researcher I am disappointed. So I slowly work on globalisation in my spare time. (Perhaps others may also feel that having a better understanding of a major influence on New Zealand’s economic performance – not to mention society as a whole – might even result in a better growth record and more for the Marsden Fund.) 

 

The future path of the economy under higher food prices is not obvious. It may cause some of our existing non-resource export industries to move offshore. That might explain why some of our clothing production is now moving to Asia, although fashion design remains here. 

 

Such a judgment has to be tentative until there is more understanding of what is going on, how New Zealand is engaging with globalisation, and how we might respond. Globalisation and the Wealth of Nations may be a foundation that helps you to understand these momentous forces, but it is not the last word. 

 

Unless we do the research, we are likely to follow fashion – and to make mistakes. For instance, many farmers are considering conversion of their land to dairying. But dairy prices may fall a bit before they resume a rising trend, whereas meat prices may catch up as soon as the high rates of slaughter cease – which they must as herds diminish. 

 

Other opportunities remain. A quarter of a century ago one of our top vineyards, Ata Rangi, was a dairy farm. I doubt there’s any need to convert it back. 

Taniwha Springs

This was a draft an affidavit I prepared for the Environment Court. in November 2007. It was rules out as not relevant to the proceedings. It is included here because it shows an ingenious method for valuing physical resources in some instances.
 

Keywords: Environment & Resources;  Maori;
 

Introduction
 

My name is Brian Henry Easton. I am an independent scholar with particular expertise in economics, social statistics and public policy analysis. I hold a D.Sc, from the University of Canterbury and am an adjunct professor at the Institute of Public Policy at the Auckland University of Technology.
 

Over the last 40 odd years I have worked in a number of areas pertinent to this evidence, including project evaluation, regional planning, and resource economics and I have also provided evidence and advice in a number of Waitangi Tribunal and similar claims.
 

I agree to standards set down in the Environmental Court code of conduct for expert witnesses. I am also a Fellow of the Royal Statistical Society and a Member of the Royal Society of New Zealand, both of which have their own codes of conduct, consistent with the Court’s code, and to which I also abide.
 

I have been asked by Ngati Rangiwewehi to assist the Court by presenting evidence which will enable the better evaluation of the alternatives before it, in regard to the supply of water to the Rotorua area.
 

In order to do this, I have examined a number of other briefs of evidence put before the Court, and will source the ones I use, as I proceed.
 

My basic conclusion is that it is not in the interests of the citizens of Rotorua to draw water from Taniwha Springs. A better course would be to source the required water from bores. The critical reason for the conclusion is that the potential of Taniwha Springs for premium tourist purposes far exceeds the value of sourcing water from it.
 

The Issue Under Consideration
 

Economic Issues
My understanding of the issue before the Court is, in brief, whether Rotorua District Council should have a consent to increase the draw-off of water from Taniwha Springs for distribution to the households and businesses of the western supply area Rotorua, or whether it should source all its water requirements from groundwater, that is from bores.
 

Grievance and Redress Issues
I observe that in the 1960s an acre which surrounds the springs were taken by the predecessor of the district council under the Public Works Act., and note that the Waitangi Tribunal concluded that some of the things which had happened in regard to the taking of Taniwha Springs were inconsistent with the principles of the Treaty of Waitangi, leading to serious prejudice to Ngati Rangiwewehi. (Central North island Waitangi Tribunal report, Volume III , p.506-507, 510)    It is dealing here specifically with the Resource Management Act, but the clear implication of its discussion is that Ngati Rangiwewehi are deserving of some redress.
            My analysis will not deal directly with the issue of such redress. But I will return to the issue at the end, and collude that the best economic advice also contributes to a redress path.
 

Siritual Value Issues
I am also aware of the extensive evidence of many members of Ngati Rangiwewehi which describes how the use of springs for domestic water reticulation led to a marked deterioration in the environmental quality of the area surrounding and including the springs and how it infringes spiritual values they whole dear. Again I will return to this issue after I conclude the economic analysis. .
 

The Economic Value of the Spring Water to the Citizens of Rotorua
 

The evidence of Mr Anthony Bryce, environmental engineer of the Tonkin and Taylor enables an economist to value the water from the springs in the following indirect manner.
 

In the following I have taken his assumption of a required flow is 6000m3/day. In which case the cost of the two bore solution (including bore investigation) is estimated to be $1,038.000. The cost of the same supply from Taniwha Springs $545,000. The difference is $493,000. (para 57)
 

(I note that Mr Bryce suggests that only one bore may be necessary, in which case the difference is $27,000. (para 57) Here, as throughout my evidence, I make the assumption least favourable to the ground water option, and so focus on the more expensive two bore solution. Like Mr Bryce I have also ignored the possibility that the existing pumps at Taniwha Springs may need to be replaced (para 54). )
 

The value to Rotorua of using the springs as a source for its water involves avoiding a capital outlay saving of $493,000 (in the two bore solution). Mr Bryce suggests that the operating costs for both options (springs or groundwater) would be ‘similar’. (para 58).
 

Mr Bryce calculates that the annual cost to the people of Rotorua would be $46,184 using a 8 percent p.a. discount rate, and depreciating over 25 years. (para 59) Perhaps I would use a slightly higher discount rate (10 percent p.a. is commonly used for economic evaluations) and a straight line amortisation for the depreciation costs. Caution too, would involve putting in a small margin for higher operating costs. That could give a cost as high as $70,000 a year – about $1.10 a resident, or less than a third of a cent a day.
 

My purpose here is not to criticise Mr Bryce’s figures, but to make the point that more conservative estimates than his best estimate still results in a very small saving from using spring water instead of the ground water. In the following I shall use Mr Bryce’s estimate of $46,184 p.a., in order to reduce confusion. However, a higher estimate gives a similar conclusion.
 

Mr Bryce’s $46,178 p.a. has the following meaning. It is the value to Rotorua of access to the spring water to draw off 6000m3/day, instead of obtaining the same water from bores.
 

This assumes that the Taniwha Springs are of no alterative use to Rotorua. However, in the longer run – once the environmental integrity of the springs are restored – they are a potential tourist attraction. What is the value to Rotorua of such an attraction?
 

The Economic Value of the Springs as a Premium Tourist Site to the Citizens of Rotorua
 

Valuing Taniwha Springs as a tourist attraction to Rotorua is not an easy. In the course of preparing this evidence I looked at the evidence of such experts as Dr Marian Mare and and Of Dr Mare, Tai Eru and Trevor Maxwell, at at various material published by the Ministry of Tourism on the prospects for cultural tourism and in the Rotorua District, and also at Destination Rotorua’s Ten Year Plan.
 

However the evidence which best captures the best use potential of the springs area, and hence its economic value, is that of Mr Wetini Mitai-Ngatai.
 

It relates how in 2005 Mr Wetini Mitai-Ngatai seized the opportunity to turn a run-down site known as Fairy Springs into a thriving business. His affidavit does not provide the complete story, but there is one salient figure which indicates the potential value of cold water springs of high environmental quality as a tourist attraction.
 

In the short period – lees than three years – of his stewardship, Mr Mitai-Ngatai has built his Mitai (previously Fairy) Springs business up to an annual turnover of $3,000,000. He says he expects to increase the turnover further, but I shall use this figure as a conservative estimate of the potential of Taniwha Springs.
 

This assessment need not assume that such a turnover is immediately realisable. Rather, at some stage in the future, Fairy Springs and other similar sites (including Rainbow Springs) will reach their full capacity.
 

The Ministry of Tourism’s projects that total visitor nights in Rotorua will increase from 3.43m in 2006 to 4.02m in 2013, an increase of 590,000 or 1600 tourists on an average night. (http://www.tourismresearch.govt.nz/RegionalData/North+Island/Rotorua+RTO/) In addition there will be day trippers.
 

That means the region has to create over the next seven years sufficient activities each day to keep an additional 1600 tourists and more interested entertained, above that which it currently provides (as well as provide their food and accommodation). If it fails to do this the official projections of tourist numbers will be too optimistic. If it does better, tourist numbers will grow faster.
 

Mitai Springs demonstrates that in due course Taniwha Springs has the potential to contribute to those additional events. Its possible $3m turnover would be small in contrast to the official estimates which suggest that total visitor expenditure in Rotorua will rise from $469.7m in 2006 to $698.4m in 2013 – an increase of 48.7% ($228.7m) or 5.8% per annum. A thriving Taniwha Springs would fill but 1.3 percent of the gap.
 

In an important way, the $3m potential annual turnover is an underestimate. Adding to the additional expenditure for accommodation, food and other incidentals might double the tourist turnover to the region to $6m a year that a site like a developed Taniwha Springs could generate.
 

The $6m annual boost to Rotorua tourism would generate further turnover from the regional ‘multiplier’ effects of the spending of those employed directly or servicing the tourist industry. A conservative multiplier would be 2, which would suggest that Taniwha Springs has the potential to generate an additional turnover of at least $12m a year in the Rotorua region if it can be developed as effectively as Fairy Springs.
 

However I shall not use the $12m figure, because I want to compare two businesses. In particular the options before the people of Rotorua, as being considered by the Court, is to use Taniwha Springs for a business to produce reticulated water for a cost saving of $46.000-70,000 a year and a premium tourist attraction which has the potential to generate a direct turnover of perhaps $6m in the region.
 

In the course of making these estimates, I have made various simplifications, in order avoid complicating the presentation. I also accept that the two numbers are not quite comparable. But I am confident that the economic benefit difference between the two propositions is so great, that any refinements would lead to estimates which would still strongly support the conclusion that the better economic use for a site such as Taniwha Springs is a premium tourist attraction in comparison to using it for reticulated water supply.
 

If this is not now intuitively obvious, consider the following. Suppose that the Rotorua District Council could reduce its energy costs by $70,000 a year, by closing down Whakarewarewa as it is today, and piping the hot water to other locations. Would anyone seriously support suggest a proposal?
 

The Rotorua District Council should take some comfort from this conclusion too. While sourcing the water from Taniwha Springs will save the Council around $46,000-70,000 a year, the development of Taniwha Springs, generating a business activities of an additional $6m a year plus the multiplier effects in additional regional activity, is likely to generate far more rates revenue than the cost savings from using the spring water.
 

Further Issues
 

Spiritual Values
 

The above estimates do not make any allowance for the spiritual values of Taniwha Springs to Ngati Rangiwewehi. It is a clear from the evidence that the use of the springs as a water source has severely damaged those spiritual values. Ceasing to draw water from the spring would contribute to their restoration. However, there is no direct way that economics can value these spiritual values. Suppose, however, that it was the equivalent of $X p.a. (if it is possible to establish a monetary equivalence of spiritual values). Then the value to Rotorua of using the ground water source in preference to the springs would be $(46,000-X) a year (using Mr Bryce’s estimate). Were $X to exceed $46,000, then it would be in the interests of Rotorua to use the ground water source, even if there were no tourist potential in the spring.
 

Redress of Grievances
 

Earlier it was noted that the Waitangi Tribunal had found that there had been serious prejudice to Ngati Rangiwewehi in regard to Taniwha Springs and that they are deserving of some redress. The ceasing of sourcing water from the springs and instead sourcing it from ground water, will simplify the terms of the redress, since it leaves open the possibility of returning the acre taken in the 1960s to Ngati Rangiwewehi. It is not my intention to argue that the return of the land should be a part of the redress (although it may make sense to reunite the land for tourist development purposes), but to point out that the groundwater sourcing is not only the better option in economic terms but it leaves the redress option open.
 

(In the above calculations I have not included as a cost the return of the land nor any necessary remediation. That is because such costs will have to be incurred as a part of the redress, irrespective of whether the urban water supply comes from the springs or the groundwater).
 

Conclusion
 

The purpose of my submission is to assist the Court by providing an economic evaluation of the broad options it faces.
 

What I have established that using the Taniwha Springs resource as a premium tourist attraction is much better economic use than using it as a source of water for urban reticulation. While the estimates of the value of each option are subject to a margin for error, the difference between them is such that I am confident of my conclusion.
 

Were I advising the Rotorua District Council and the people of Rotorua, I would unequivocally recommend that they phase out their use of Taniwha Springs as a source of reticulated water in favour of a ground water scheme, and that they take steps to make enable the springs and its surroundings to develop into the premier tourist attraction of which it is capable.
 

If this also contributes to settling the grievance of the Ngati Rangiwewehi in regard to their acknowledge grievance over Taniwha Springs, the people of Rotorua will be twice blessed.
 

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Is Inequality Really Increasing from Globalisation?

The Weekend Herald of November 10, 2007 devoted three pages, to a Newsweek article which was strong on anecdote and opinion and weak on analysis and facts. I submitted the following note. They took a fortnight to tell me they had more important things to deal with.
 

Keywords: Distributional Economics; Globalisation & Trade;
 

The Newsweek article “The Wealth Divide”, which argued that globalisation is increasing inequality, tells too simple a story. (Weekend Herald November 10, B1) Historically globalisation has increased inequality, but the same statistics also report that while the rich economies increased their real per capita incomes by 17 and more times in the last 200 years, Africa and India, the poorest regions, have increased their incomes by over three times. Thus while the gap between them and the rich has increased dramatically, nevertheless the poor economies are better off in material terms.
 

Suppose that the growth of the world economy has been driven largely by globalisation, a case I make in my book Globalisation and the Wealth of Nations, observing that there was hardly any economic growth in the 2000 years before globalisation began in 1800. Then Africans and Indians were beneficiaries in absolute terms from globalisation. It is just that they did not get as much benefit as some of the other regions.  Had there been no globalisation they would be so much the poorer – we all would.
 

That seems to makes globalisation a sort of caucus race where, as the Dodo said, `Everybody has won, and all must have prizes’ (albeit of different value). But even that is not quite true. In 1950 China’s per capita income was lower than it was in 1800. It is only recently that its economy began to really gain from globalisation (although probably not as much as the statistics it promulgates claim).
 

Newsweek says that ‘income inequality is on the rise throughout the world’. No evidence is given but the statement is probably not true. (For various reasons the data is damned hard to interpret.) Inequality may be rising within China and the United States. (Ignore the Bush tax cuts which were outrageously favourable to the rich. This is about before-tax incomes.) But it is probably falling in the world as a whole. The main mechanism seems to be the offshoring of jobs from America to China, which increases wages in China and stagnates them in America. The resulting closing gap between Chinese wages and American wages reduces overall inequality.
 

Of course inequality is rising between China and Africa which is not greatly benefiting from this offshoring. If globalisation sometimes seems to be a lolly scramble, the lollies are not shared equally. Indeed it is possible that Africa wont get many lollies until next century, which makes it all the more important that we should take an active interest in promoting its welfare. That  requires our understanding what globalisation actually is about. .
Globalisation is a good example of the principle that there are many statements about social phenomenon which are short, simple, clear and wrong. Anecdotes – the diet of such statements – can be misleading. Consider Newsweek’s story of the elderly Tsang Wing-on who is finding it a real struggle to survive in Hong Kong. Are we allowed to ask where she was born? Probably a village in China. I dont want to speculate whether she would be better off to still be in her birth village. What is important here is the transition from rural to urban living is more significant to her life than the income statistics tell. Globalisation is transforming all our lives in ways which make the income inequality debate of much less significance than it is portrayed.
 

Yet, we should not ignore the inequality. It is a matter of record that rich economies sometimes use the power which comes from their wealth to take actions – notably trade restrictions – which make poorer nations worse off. That is unconscionable and needs to be corrected. But before we get onto high moral horses we need understand the phenomenon we are criticising.

Go Figure

The fine art of spotting creative accounting
 

Listener: 3 November, 2007.
 

Keywords: Business & Finance;
 
Ian Cross, a former editor of the Listener, says I was one of only two commentators who warned in early 1987 that shares were overpriced. But even if I predicted the 1987 sharemarket crash – albeit not its timing – I didn’t get it quite right, though more so than those commentators who said the economy was sound. (The other exception was Rob Muldoon: sometimes one has very strange bedfellows.)
 

I looked at the share-price-to-earnings ratios of reported companies, which were then wildly out of line with past levels. Moreover, they were unsustainable unless investors were willing to accept very low rates of return on their investments, well below the then current interest rates.
 

I learnt from my mistake. Share prices reflect the actual prices trading in the sharemarket, and I assumed that reported earnings of the businesses had the same integrity. With hindsight, they had not. Creative accounting was a reality in 1987, to be exceeded only by the whizkids in Enron, the giant US energy company that went bankrupt in early 2005.
 

So in 1987 true earnings were often much smaller than was reported, the price-to-earnings ratios were even more out of line than I assumed, and the crash was more imminent than I expected.
 

I made my mistake because I was used to the economists who prepare the National Accounts for Statistics New Zealand. They produce estimates of GDP with integrity. Inevitably there are errors and revisions, but I have never found them fiddling the data to make the economy’s performance accord with their prejudices. Sadly, that is not the record of all business accountants nor even, as in the case of Enron, of auditors.
 

A (now-retired) Canterbury University accountant, Alan Robb, has proposed rigorously monitoring business cashflow. Robb has shown that companies that crash normally have a clearly deteriorating net cash position. As far as I know, no sharemarket analyst regularly monitors financial performance in Robb’s way.
 

Are we suffering from shonky accounting this time, too? Perhaps the answer is “always”. Despite the profession’s dour reputation, some accountants seem to be very innovative. But do their inventions undermine the interpretation of the accounts? Let’s hope there is only the odd reprobate and that you are not investing with them. But I was wrong in 1987.
 

It’s true that even reputable financial institutions can face major difficulties in valuing their assets. The giant Swiss bank UBS recently announced a $US3.4 billion (say $NZ5b) write-down on its fixed-income assets. Many were securities backed by American subprime mortgages, for which markets have dried up, and so there are no market prices. UBS is also laying off 1500 workers.
 

Other giant banks are making parallel write-downs, although, as huge as their losses are, they will usually be covered by reducing shareholders’ equity. That is what capitalism is about. Businesses make judgments: their shareholders take the risk of a good or bad return.
 

But there are limits to shareholder exposure. If the mistakes cost more than their equity, others have to take the pummelling. Which is what is happening in our finance sector as debenture holders and depositors lose all or part of their investment in some – but not all – finance companies.
 

It may be that some finance companies have been over-optimistic about valuing their bad debts, thereby including in their balance sheets assets that will not give any return. At least one seems to have done so. But they are on the fringes of our financial system. The problem we face will be a macroeconomic one, when sectors that have depended on easy credit adjust to the new stringencies.
 

Things are more unsettled offshore. We cannot write off the possibility of an international financial sector implosion large enough to disrupt their economies. If that happens, our economy will also be affected for the worse.

Making Majuro

Visit to the Marshall Islands. 

 

Listener: 20 October, 2007. 

 

Keywords: Globalisation & Trade; 

 

The Marshall Islands are due north of New Zealand – about eight hours’ flying time on an RNZAF 757. I was there recently on the annual Pacific Mission led by Foreign Affairs Minister Winston Peters, who takes a team of New Zealanders around selected Pacific nations for a week. 

 

We visited the atoll of Majuro, the island’s capital, where about half of the 62,000 Marshallese live. The atoll is a ring of islands about 50km long and 80 metres wide at its widest point. As Charles Darwin first observed, atolls are formed by a coral reef growing around a volcanic island that later subsides into the ocean. Such reefs are built by tiny tropical marine organisms, and yet are far larger structures than anything built by man. 

 

We know little about the origins of the Micronesians who first settled the Marshalls more than 2000 years ago. The islands were annexed by the Germans in 1886, taken over by the Japanese in 1914 and captured by US forces in World War II. 

 

In 1986, a Compact of Free Association with the United States gave the Republic of the Marshall Islands its sovereignty. The compact provides for aid and US defence in exchange for continued US military use of the missile-testing range at Kwajalein Atoll. The Marshallese have unrestricted access to the US. 

 

The economy is not a robust one. Three out of five workers are government employees. Total tax revenue is about $US35 million and expenditure is nearer $125 million. The gap is bridged by aid and the revenue from a trust fund established by the US Government as part of the compact and contributed to by the Republic of China – Taiwan. (Consequently, the People’s Republic of China refuses to occupy its huge embassy building.) 

 

More than a third of the budget is spent on education: 38 percent of the population are under 15. (The comparable figure for New Zealand is 21 percent.) A priority is getting their school and tertiary buildings up to standard. The head contractor for this work is the New Zealand firm Beca International, an engineering and related consultancy services group that is also involved with the Marshalls’ hospital and airport. 


Beca began in 1918 when Arthur Gray returned from World War I; George Beca joined him after World War II. The group worked initially in New Zealand on such projects as Auckland International Airport, the Bluff aluminium smelter, the Reporoa dairy factory and the University of Auckland Business School. It has evolved into a New Zealand-based partnership owned by its 400-odd principals, working in 20 countries. 

 

Beca exemplifies an export category frequently overlooked in public discussion: New Zealanders applying their professional skills overseas. Foreign exchange earnings of all professional services surpass $1 billion a year, more than for wool and comparable to fish and fruit. 

 

Providing the services can be challenging. The Marshalls projects have involved about 70 New Zealanders, and 60,000 hours of design work in New Zealand. They had no building codes, so Beca developed its own, specifying New Zealand materials unless something cheaper of the same standard or better could be found. So they use New Zealand materials when they can’t locally source. They also employ locals as much as possible, and train them. 

 

We visited the school buildings. They were plain rather than extravagant. Because of supply difficulties, they are designed to last, and attention has been given to keeping them cool in the tropical clime. They are functional rather than ugly. Majuro’s “Bikini Town Hall”, built for the inhabitants of Bikini Atoll displaced by the nuclear bomb tests, is heavy and sad. Our designers have done much better. 

 

<>But the builders that really impressed me were the ones that constructed the reef.

Writing Globalisation and the Wealth Of Nations

Presented to the Stout Research Centre ‘Research Roundup’ 17 October 2007
 

Keywords:  Globalisation & Trade; Growth & Innovation; History of Ideas, Methodology & Philosophy;
 

Invited to contribute to this Stout Centre Research Roundup, I was torn between telling you about the project I am working on, and the one which I have just completed with the publication of its book, Globalisation and the Wealth of Nations, which is just released. The current project is a history of New Zealand from an economic perspective, which this year is being funded by a Claude McCarthy Fellowship hosted at the Stout. It is work in progress. Perhaps you might invite me back next year to talk about it.
 

I am not proposing to work through the details of my just published book. You can read it for that. Instead, I thought it might be useful – especially in a research roundup – to describe the research and writing process. Too often we see only its end point – perhaps thinking the conclusions are obvious – and not see the blood, sweat and tears, the blind alleys and the roads to Damascus which got us to where it seems so obvious. If progress seems confusing – well, it is.
 

The Diminishing Costs of Distance
 

There were two key factors which made the study possible. The first was my recognition that globalisation was about the diminishing costs of distance. The awareness of the tyranny of distance – as Geoffrey Blainey’s seminal book is called – is an integral part of growing up in Australasia. The notion that tyranny is diminishing is obvious – Blainey makes the point in his most recent edition of his book. An extension of Blainey’s thesis will be found in Frances Cairncross’s The Death of Distance published in 1997, although an Australasian may agree with Mark Twain that reports of the death are exaggerated.
 

We knew all this long ago, but more recently it struck me that the costs of distance had analogies to tariffs, and could be analytically handled by the tariff theory of economics. Tariff theory is a subtle part of economic theory, which cannot just be summarised by the notion of ‘free trade – as it is called – is a good thing’. One of the problems I would like to get across today is that while there are popular views of what economics says, they are rarely based on an understanding of its complexities.
 

For instance, even if you believe the conditions favourable for free trade exist, you need not support a free trade area between two countries, because the economic theory shows that partial reductions in tariffs can damage an economy. This is important if we are thinking about the costs of distance. They are rarely entirely eliminated. A reduction in the costs of distance may not be beneficial to a country, although in my assessment– especially from an Australasian perspective – it is generally has been, creating opportunities that had not previously existed.
 

For example, the falling costs of the electronic transmission of information has meant that New Zealand has a niche in the overnight translation industry. Europeans lock up an agreement in their late afternoon, fire it down the line to New Zealand, go off for the evening, and when they start work the next morning they have multiple translations of the document.
 

So I use tariff theory in the fundamental chapter in the book with the example of refrigeration which reduced the cost of transporting fresh meat long distances from infinity to near zero. Chapter 3 wrote itself easily, not at all surprisingly given I first began understanding this issue over a third of a century ago. This globalisation study is a part of a research program conceived all those years ago which asks how small economies function and survive in the international economy. My current project is the another stage.
 

Once there was no common definition of globalisation. People could write entire books about the topic without defining what they meant. For example Thomas Friedman’s The World Is Flat never says what is meant by flatness, but just repeats examples and claims they illustrate the contention. In fact, as I’ll explain later, the world is not flat, if I understand him aright. But who can, if he does not give a definition?
 

I quickly struck on a definition of globalisation as the ‘integration of regional and national economies’. There is a minor difference between this definition and the standard one now used by economists: mine refers to regions as well as countries. Regions may seem irrelevant today, but their economic integrations preceded the integration of countries.
 

Chapter 4 illustrates that with the process of regional integration in early nineteenth century America . At the time of its formation, the US was a series of fragmented economies and societies which integrated with the arrival of the road, canal, rail and telegraph networks. The expression ‘United States of America’ was barely used in public discourse until about fifty years after the revolution.
 

The difference in the definition arises because economists such as Joseph Stiglitz and Stanley Fisher want to talk about globalisation today, whereas I am also concerned with the historical story. From the beginning I was aware that globalisation was a historical process – had to be if the introduction of refrigeration illustrated it. The book argues that globalisation is a couple of centuries old. At the beginning of the nineteenth century about 1 percent of the world’s output was exported. Today it is over 20 percent for goods alone – with service exports to be added.
 

The book acknowledges the case for the fifteenth century being the beginning of globalisation, with the great explorations and the arrival of printing (which substantially reduced the costs of information transmission). But the next few centuries are of less interest to the economist: distance costs were so high and trade was limited to products that could not be produced locally, so there was not much economic integration .
 

History can be sobering. We tend to treat the recent past – that which we grew up in – as ‘normal’ and subsequent changes as – usually – for the worse, providing a ‘nostalgic’ account of contemporary events. The point is that the ‘normalcy’ and the ‘nostalgia’ are different for our parents and our children, and indeed for any other generation. History provides a perspective.
 

For instance while there is considerable concern in my generation about the acceleration of globalisation from the ICT revolution, there is less among our children Their turn to be shocked is to come. However, as I argue in an article I wrote for an American literary magazine, Gutenberg’s printing revolution had more dramatic implications than the internet.
 

Funding
 

While the recognition that the role of falling costs of distance was key to the analysis, adequate resources were needed to make possible its investigation. The Royal Society of New Zealand awarded me a Marsden Grant to to spend three days a week for three years to 2006 doing this. Such a grant is liberating. As I have no regular base funding in the way an academic has, much of my publicly directed research has been done in the gaps when I am not earning a living as a consultant. The grant gave me a security – and, dare I say, an incentive – to progress the task in manner more fully than had I been ducking and diving between contracts.
 

So I here I was, with a theory and the funding for a study. Of course the inevitable happened. The research had a mind of its own, and it kept introducing new ideas. Three markedly changed the end product. The first was a change from a New Zealand perspective to a more international one.
 

Fulbright Fellowship
 

A consequence of the funding was that I could afford the time to travel overseas. Fulbright New Zealand awarded me a Fulbright Distinguished Visiting Fellowship. which allowed me to, as it were, take a sabbatical in the United States in 2004. Its impact was enormous.
 

My original intention had been to study globalisation’s impact in New Zealand. Indeed every page of the book implicitly or explicitly refers to New Zealand issues, but now the book roams over many other countries. While on my Fulbright that I concluded I should have a international perspective. I guess it is obvious enough. Globalisation in one country is hardly a sensible notion. But it took getting out of New Zealand for a longish period to clarify that.
 

But it was not just being away. Based in the US I engaged with the country, especially about the story of the founding of the United States. One Sunday I visited George Washington’s estate at Mount Vernon, an hour or so out of Washington. It has been lovingly reconstructed to the state it was in his day. I was struck by how different his farm was from the New Zealand ones I knew, how it was more a feudal farm than a modern one. And that confronted me the amazing story, of how the US transformed from essentially a feudal society at the time of the revolution, to the greatest industrial economy in the world in about a century and within the next century became a globalised power. Sure, I had read about the transformation before, but the seeing was believing.
 

As I have already said, the United States was far from united when it was founded, and the integration through falling costs of distance was evident as I proceeded with my studies. As I tried to get into the thinking of the era, I became aware that while the American constitution was progressive for its day, some of that thinking had been outdated by globalisation.
 

Today’s nation-state is a phenomenon which began in the nineteenth century, following the globalisation of regions. That is set out in Chapter 12 of the book – which benefited greatly from a two-week visit to Germany sponsored by the Federal Government of Germany and the Goethe Society. It shows that a nation-state as apparently robust as today’s Germany is a very recent development.
 

So when the founders of America thought about their political future, they did not have a picture of a world of nation-states as we know it today, but of a Europe of squabbling, impermanent, small states which were defined more by the ruler – “L’État, c’est moi” – than by the republic of men which the American founders envisaged. They allowed government power to be centralised in the federal government of the US, rather than the in states, although as a consequence they had to leave a lot of economic power with the decentralised market. (I told this story in my Fulbright lecture ‘From Feudal Society to Globalized Economic Power’.)
 

I could not but compare the European Union which was created a couple of centuries later. Although we think of Europe as older than the US, the EU’s constitutional arrangements are more recent and hence more modern, because they take into account the existence of the nation-state which developed in the nineteenth century.
 

My Fulbright experience led me to see two models of world governance. One was a federated world as envisaged by the America’s founding fathers, in which states would have little power: the other was the European Union where nation-states maintained considerable power over the central government – a bit like the confederation that preceded the US constitution.
 

We can argue over which would be the better form of world governance, but the political realities are that the European Union model of powerful nation-states is likely to be with us for some time. Ironically a key reason is that the United States of America, which provides the other model, is as unwilling to give up its sovereignty to a federal world government as the European nation-states are proving to be in regard to a centralised European Union.
 

With that insight, I looked at supra-national economic institutions such as the WTO, the IMF and Multinationals (in chapters 17 to 19) and concluded that they reflect much more a confederated world of powerful nation-states than a federated one. The reason many New Zealanders do not realise this, is that we are small nation-state with little power. But that does not mean that large ones and confederations of small states are powerless.
 

The Fulbright experience resolved a problem about the importance of the Pacific. Earlier I had gone to Samoa. Every Pacific specialist had told me that I must include the Pacific Islands in any study of globalisation, although they became less definite when I asked them how. I went to Samoa to see for myself, and came away as bereft of ideas as those who had told me to go. It was a pleasant enough visit, but nevertheless a blind research alley.
 

Coming back from my second Fulbright stint, I stopped over in Hawaii and I saw a globalisation story. When the costs of distance were high, Samoa was the centre of the Pacific if not the universe as it still likes to claim, and Hawaii was on the obscure fringe. Came the European sailing vessel and the importance of the locations were reversed. That lesson opens up the book proper, a particularly powerful story since they are both Polynesian societies. I doubt it is the story the Pacific specialists envisaged, but to look forward, it has also helped me think through the second chapter of my current study, which is about the Pacific Island economies from whence the ancestors of the Maori came.
 

My final example of the impact of the Fulbright trip on my thinking requires a bit of economic modelling which was the second major way the research program was changed.
 

Economies of Scale
 

The majority of public economic discussion makes assumptions which economists have wrestled with, not always agreed upon, and which may even be probably wrong. There is a view, sometimes attributed to Mark Twain that ‘economics is common sense made difficult’. I shant be surprised if some think that Globalisation and the Wealth of Nations is obvious common sense, but it wasnt before I wrote it, nor before they read it. I know because I have seen how long it takes to get across some of the profound implications that the study: I know because I have wrestled with deep treacherous theoretical problems. I am a bit hesitant to discuss them further because I may lose this audience On the other hand you deserve some explanation. So here goes.
 

Earlier I mentioned trade theory, and the results which commonly are used to justify ‘free trade’. What is not generally understood is that the prescriptions assume certain mathematical structures which need not be true in the real world. I am not going through the mathematics, but an example of the problem is economies of scale, and the average costs (sometimes called unit costs) fall as output increases. We often assume is that the scale effects are not practically important: sometimes they are.
 

Economists do not have a rigorous theory of the behaviour of firms with economies of scale. However there is one case about which we can say a lot: where the economies of scale apply to an industry rather than an individual firm. In such cases firms cluster together because that slower all their costs. The cost lowering is shared between all firms, so industry economies of scale – of agglomeration – is analytically tractable.
 

I shall not go through the analysis but its conclusion is that because of agglomeration effects exist we have cities. Despite the diseconomies of scale – such as traffic jams – which cities experience, agglomeration economies are so powerful that we have huge – high productivity – conurbations of ten and more million people clustered together.
 

Earlier I said that Thomas Friedman’s notion that the world was flat was wrong. If it was flat, such conurbations would not exist. In fact the world is rather lumpy: Tokyo, New York, Seoul, Djakarta … (Notice that this is a list of towns, not countries.)
 

I was aware of this economic literature before I began the Marsden project. It is about two decades old but nicely summarised and consolidated in a book The Spatial Economy by Masahisa Fujita, Paul Krugman and Tony Venables. On rereading it, with more time and so more closely – the pages are covered with mathematics – I realised that it would have to markedly modify the underlying model I was using.
 

Economies of scale are important when costs of distance change. If the costs are high, the supplied market is likely to be limited, and so output is limited, unit costs of production are high and there are many small production plants. As costs of distance fall, a plant can reach a greater market, its unit costs fall, and the number of plants decrease and concentrate in fewer locations. That is the story I tell in Chapter 4. That concentration usually occurs in conurbations.
 

When I was thinking about globalisation with a New Zealand perspective, I planned to write about Auckland. The Fulbright experience changed the illustration of agglomeration to New York, which is arguably the world’s greatest global city, and certainly the best documented.
 

Ironically, having discarded Auckland as the chapter illustration, I found myself through a particular government board I am on, being involved in the developing of policy on Auckland. It will be for others to say what influence I had, but as a result of the Marsden Fellowship, the Fulbright, award, and the decision to focus on New York, I had a better understanding of the issues involved with regard to Auckland: any influence I have will be of better quality.
 

Increasing returns had an even more dramatic impact on the study, but before explaining that, I need to talk about the structure of the book, which itself became tangled up with the title .
 

The Title of the Book
 

At an early stage in the study I decided my main focus would be to write a book rather than a report, or a series of journal articles. I always have a lot of difficulties with the structure of any book I write, but it is not my fault. It is the complexity of the subjects I am writing about.
 

Take something as simple as the title. I started off with titles like Diminishing Distance which was more accurate than the ‘death of distance’, but not as strong, and Distance Looks Our Way, which was thought to be too New Zealand and too obscure to work. My working title became The Globalisation of Nations, which remains my preferred title, but was abandoned because we found that few got the resonances with Adam Smith’s The Wealth of Nations. To get it across, the final title became Globalisation and the Wealth of Nations.
 

At least one reviewer took the reference to Adam Smith was evidence that this book was written from a conservative perspective. In fact in his day Smith was a radical recognising that the political economy was changing and there was need for a changes to respond to it, thereby challenging the incumbent establishment. After his death the interpretation of Smith was toned down so his writings would not be censored. Eventually he became a saint of the conservatives. But as the book points out, just as Karl Marx said he was no Marxist, Smith would not today join an Adam Smith club.
 

There were two specific reasons why I chose to connect with Smith. First he is usually credited with being the first economist to pay attention to the welfare of all people in the state – of the nation-state. I wanted to make it clear that I was writing about such entities and was dealing with the problem of whether they would survive in a global regime.
 

The second reason was in the way that Smith saw the economic growth process. What I am going to say now is obvious – after one has been told – but was radical in his day, and even remains radical today because as obvious as it is, the implications are not widely understood.
 

Smith’s driver of economic growth is specialisation and its benefits from the economies of scale. That is not the entire story as we understand it today – Chapter 20 sets out recent developments in growth theory – but it is an important part of the story. Once an individual or firm specialises, it becomes necessary to trade its products for others. As trade gets complex it cannot depend on barter (which subsistence economies do on the margin). There is a need for a medium of exchange – for money.
 

(That is all very obvious, but its subtlety is revealed by an issue which is bothering me in my economic history project. The pre-European Maori was in a subsistence economy with some barter of specialised products. How did Maori culture in a relatively short time – probably a generation – shift to a market, monetary economy? )
 

Smith’s insight underpins my book. Once we seek the benefits of specialisation and increasing returns, we must trade. That is particularly true for a small economy such as New Zealand, but it is also true for every region in the world. Were New York to become self-sufficient in food it would forgo the advantages it currently experiences from agglomeration. So we are forced to trade inter-regionally and internationally. My book is a meditation on that fate.
 

Smith did not pay much attention to globalisation for in his day the costs of distance were so great that there was little international trade. Smith was not a free trader. It is necessary to edit his statements on the invisible hand to hide that fact; he became a customs officer after he wrote his most famous book. The modern theory of international trade begins with David Ricardo, half a century later as globalisation takes off. Attributing it to Smith is an anachronism which ideologues accept because scholarship is not their priority. Despite them I am happy to recognise Adam Smith’s insights.
 

The Structure of the Book
 

When I was using the title The Globalisation of Nations, I had the neat structure of a the book in two halves, the first of which was the economics of globalisation and the second was on the political economy of nations. Even so, the chapter order within them proved a problem. If I remember aright, I inverted chapters six (on competitive advantage) and seven (on offshoring) at a very late stage – always a dangerous thing to do, because of cross-referencing and expository sequence. (Thankyou David Green for the editing.)
 

Chapter sequence is always complicated in my kind of book. I dont have the luxury of the historian or biographer who begins at the beginning, follows thorough chronological sequence, and ends at the end. Nor is there a purely logical sequence. The model I am using has feedbacks, so something needed in one chapter may not be explained until later. It’s a bit like those simultaneous equations which lead many people to give up mathematics. (Of course they can often be solved, but the resulting solutions may be unintelligible to almost everyone.)
 

It can be the same for explaining a theory, which is why I bolted onto the front the introductory chapter setting out the overall analysis. Hopefully it will give the reader some comfort that the loose ends which inevitably arise in early chapters will be tied in by the end.
 

In fact, the final structure of the book has nothing of the planned elegance of the two equal balanced parts. It ended up in four parts in an economy, politics, economy, politics pattern with the parts of unequal length. Why?
 

The Bifurcation Model
 

Earlier I said that there were three major impacts which modified the plan originally submitted to the Marsden Fund. Two were that I gave the study a more international perspective than I initially planned and the introduction of economies of scale skewed the study’s theoretical underpinnings. I have yet to explain the third. It was empirical.
 

Angus Maddison has published an extremely valuable data base, The World Economy: A Millennium Perspective, which provides population and output estimates for the world economy going back two thousand years. It was always going to be integral to the study, but Robert Wade, a New Zealander who holds the chair of development studies at the LSE, pointed out that the distribution of countries by their average income is peculiar. There are two clusters – I call them ‘clubs’ – a Rich Club of countries and a Poor Club. But there are remarkably few middle income countries between them: those that are, can be explained as special cases: oil producers, located close to Rich Countries, or transitioning through from being a poor to a rich country. The only exception difficult to explain is Mauritius.
 

Bi-modality” is unusual. As Chapter 26 explains social processes do not generally produce two clusters and little between them. Then I remembered that in the Fujita, Krugman and Venables book there was an account of the world which gave the two cluster outcome we see in practice.
 

The model is not easy to understand, but at its core is the existence of economies of scale which lead to a bifurcation of development paths – a high road for the Rich Club and a low road for the Poor Club. With one exception which I shall explain shortly, there is no place in the model for those in the middle. (A small coincidence is that I worked with Peter Elkan on a version of the model in the 1960s. However we were concerned only with a single – small – country, and did not pick up that when two countries traded these bifurcation paths occurred. I mention this as an illustration that a blind alley in one generation may provide a useful route in a second.)
 

The primary reason for the bifurcation is economies of scale. Just as it causes some economic activity in a country to concentrate in a few conurbations, it causes industrial economic activity to occur in only a few countries, with the remainder as the suppliers of food and other resources.
 

I have not time to set out the full workings of the model, but – Eureka! – it is driven by falling costs of distance. When costs are high, everyone has industries which supply the locals. As the costs of distance fall, some businesses expand out, supplying increasingly larger areas at the expense of their local industries. The displaced become suppliers of food, and the limited land means the farmers are poorer than in highly industrialised economies.
 

When a decade ago I conceived the importance of the costs of distance falling, I had no idea that it was part of an explanation of why countries cluster into the rich and the poor. I knew there were these clusters – economists regularly distinguish between ‘developed’ and ‘developing’ countries, as they call them – although until Robert Wade pointed it out, I was unaware of the dearth of countries between.
 

You might think the explanation was consistent with the Marxist analysis that rich countries developed on the back of poor countries. Well yes and no. ‘Yes’, in that the rich countries could not have developed this way without the existence of poorer countries. They are interdependent, and the fruits of economic growth are shared unequally. But ‘no’. Poor countries get a share of the economic prosperity. Real incomes of Africa – the poorest continent– have risen by three times in the last two centuries and are now higher than the real incomes of Western Europe and North America when globalisation began. The Marxist prediction of the immiseration of the poor is not evident in the data.
 

These insights markedly changed the end of the book, which is why the structural change. I had to split the first half of the book, about globalisation and economic development into two – a Part I and a Part III which naturally led into the Part IV on the future. I then insert Part II, originally in the second half, between them, so that the second half of the book was securely based on the existence of nations-states.
 

The Future of Globalisation?
 

The bifurcation model of Fujita, Krugman and Venables makes some seemingly surprising predictions.
 

One prediction is that as the costs of distance continue to fall, the wages in poor countries will eventually undercut the rich countries’ costs and with distance costs no longer being a kind of protective tariff, enable poor countries to make industrial goods, and the two development paths will come together again. The qualitative model does not tell us how low the distance costs have to be, but it suggests that one day – perhaps centuries off – there will be greater equality of average incomes between nations. (Given this story involves capitalist economic development, it shows the model is not essentially a Marxist one.)
 

A second prediction is that this combining of the Rich and Poor Clubs is not likely to happen in a single instance. Rather one by one, poor countries will peel away from the Poor Club, pass rapidly through the middle income range and join the Rich Clubs, whose relative income falls as a result.
 

And that is what has happened. Finland and Japan did so slowly through the twentieth century and Ireland, Korea, Spain and Taiwan somewhat more quickly in its latter decades. One might argue that other parts of East Asia (especially in China) and parts of India are beginning to go through the transition. You will also find that, consistent with the model’s prediction, that despite substantial productivity gains, median wages in the US have been stagnant since the Asian Tigers took off.
 

The third surprising prediction is that the price of food and resources will rise relative to industrial goods. We can illustrate the mechanism as follows. Chinese workers leave their land to work in factories producing products offshored from the US and sold there. The price of what they produce falls compared to the US production price. At the same time China produces relatively less food, while its rising prosperity raises the industrial workers’ demand for food, so the price of food rises.
 

Again this has been happening. The terms of trade between industrial goods on the one hand and food and similar commodities has been rising since the early 1990s. The current dairy price bonanza is an extreme example, in which additional conditions of drought in key supplying areas and the switch to bio-fuels are exacerbating an uptrend in relative food prices. This contrasts to the bulk of the twentieth century, in which relative food prices tended to fall – to, one can add, New Zealand’s economic detriment.
 

The consequential future scenario is sketched out at the end of the book (but not in as much detail as I understand a year later). Having identified this phenomenon I had to alter the structure of the book in order to provide a different ending from what I had originally expected.
 

Conclusions
 

You may ask more about the future prognosis. One answer is to read the book, since we have run out of time.
 

A second answer is that ‘yes’, I know more now than is in the book for in the year since it has been written I have had more time to think about and elaborate the underlying model and investigate the empirical evidence. But I am afraid such work has had to be unfunded part-time. An extension of the funding of the research project was turned down: funds are limited and it was not a priority. As a result I have had to switch to other, I hope better funded projects.
 

Which is a pity. I have made good progress but there is more to work through. The bifurcation model I have used is obviously useful, but it is a simplification of reality. It does not deal with, for instance, the effects of peak oil which appears to reinforce some of the model’s conclusions but breaks up the simplicity of the model’s regional patterns.
 

However, this but illustrates a key point of this presentation on the challenge of writing my globalisation book: I was extraordinarily lucky to get the Marsden funding and make such progress. Of course the work should be progressed. Because I am committed to research I dont give policy the priority which is common in Wellington – it confuses the clarity of the analysis. But I can see that the analysis has long term implications for New Zealand’s future, and that it probably has major policy implications.
 

Sadly, the extension of the model is likely to occur offshore. New Zealand economics does not have the funding, the innovativeness nor the institutions to do the job. But we do have my book Globalisation and the Wealth of Nations.

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Socioeconomic Impacts Of Gambling

Paper for Combined APSAD and Cutting Edge Addiction Conference 2007 (Aotea Centre, Auckland, New Zealand, 4-7 November 2007). This reports on a contract of SHORE (Centre for Social and Health Outcomes Research and Evaluation) at Massey University.  

 

Keywords: Health; 

 

One area of addiction is gambling. Over the last year SHORE, the Centre for Social and Health Outcomes Research and Evaluation, with its considerable experience in alcohol studies, has been working on a Ministry of Health funded project to measure the socioeconomic impacts of gambling. The work is in progress, so today I am going to report on some of the conceptual problems we have faced and Kay Hammond, also of SHORE, will talk about the survey. 

 

I am assuming that the WHO-published International Guidelines for Estimating the Costs of Substance Abuse is reasonably well known. I was one of the members of the panel which prepared it. Two of my Australian panel colleagues, David Collins and Helen Lapsley, extended the analysis to the economic issues of the social costs and benefits of gambling, although there are some issues to be resolved and – of course – still data to be collected. 

 

At the heart of a social cost study is a comparison between the actual situation that exists, and the counterfactual scenario which is typically some ideal situation. This arises because economists always define a cost (and benefit) as an opportunity cost (or benefit), that is, the difference between two scenarios. 

 

But what is the right counterfactual scenario: one in which there is no gambling whatsoever, or one in which there is no addictive gambling (and how would we define that)? 

 

Having got the two scenarios – the ‘actual’ and the ‘counterfactual’ – we compare them and then value the differences. The general rules for valuation, derived from economic theory, have been known for almost fifty years, although sometimes they are applied to a new situation. This is the case whether we are investigating substance abuse or gambling. However there are some issues particular to gambling which also throw light upon substance abuse. 

 

First, mortality is not important in gambling. Its human costs are those of the misery – the poorer quality of life – that it causes to the living. One of the purposes of the SHORE survey is to collect data to enable us to assess these morbidity costs suffered by the addicted gambler and her or his friends and families. This is going to be pioneering – highly innovative – research and if we can get it right we will be able to apply the approach to the living who suffer from substance abuse. 

 

A second problem, which is especially important in gambling, is that of the income redistribution it causes. The standard economic framework treats such transfers as unimportant. There is a good reason for doing this, but it is not compelling for a gambling study where transfers are so important. There are some sophisticated ways of taking income redistribution into account – my favourite is the Atkinson-Stiglitz index – but we dont have the data. Instead we will follow the International Guidelines recommendation and do a sectoral breakdown. It wont capture all the redistribution but it will provide a framework to discuss the issue. Both Collins-Lapsley and I do sectoral breakdowns in our substance abuse studies, but this study may use more sectors and do so with greater precision. 

 

A third issue, not covered by the second edition of the International Guidelines, is how to value the outlays of the addicted gambler (or substance abuser). Since the guidelines were promulgated, economists’ understanding of the issue has progressed. 

 

Economists know how to treat the consumption of rational consumers, but have been unsure how deal with addicts, who may not be rational. Recently, drawing on psychological theory, economists have found a rigorous formulation for addiction. In economists’ jargon addicts show ‘time inconsistent behaviour’. Such behaviour occurs when a person plans to restrict their expenditure on something, changes their mind when the opportunity to spend occurs even though there is no fundamental change in the situation, and regrets the spending afterwards, again despite no fundamental change in the situation. 

 

This may seem obvious, but when the notion is mathematised, it proves to be a powerful way to adapt the standard model of rationality. It suggests that consumption for which there are subsequent regrets should be valued at less than rational consumption. The liquor which causes the hangover you do not want is not as valuable as a more restrained indulgence. 

 

Collins and Lapsley have used an ad hoc adjustment in the past for this ‘irrationality’, deducting some of the consumption from consumer value. It turns out that their adjustment is close to the theoretical ideal. I followed them. We will apply their approach with more confidence in the future. 

 

All I have been able to do in my session is to alert you to some of the theoretical issues we are challenged with. In order to apply the theory we need some data. Over to Kay. 

 

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Place Your Votes

Now is your chance to choose strong local governance.

<>Listener: 6 October, 2007.

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Keywords: Governance; Political Economy & History;

Why are you voting in this month’s local body elections? I’m voting because I believe in the principle of “subsidiarity”, that decisions should be taken at the lowest effective level. That is why I often support market decision-making. The market is reasonably effective in meeting our needs and my view is that the government should butt out in such cases. But there are exceptions.

When it’s a question of collective supply there need to be exceptions, and where individual decision-making -cannot work, the best option at the lowest effective level is often your local government. That is why I am voting: to make sure I have a strong local government and that central government does not have to take over things that can be done at the local level.

Revenue-raising (taxing) is one thing that central government is much better at doing than local government. That is because when one locality imposes income tax or GST, the locals can easily avoid it by going to another area. Rates cannot be similarly avoided – you can’t move land to another city. So local authority rates are the main source of local revenue.

Unfortunately, rates are a difficult tax from other perspectives. Their payment is lumpy, and they tend to impose on the poor, relative to the rich. In any case, there are limitations to the feathers you can pluck from a goose, and total revenue may be less than your locality needs.

Are there alternatives?

Some argue that central government should use its superior taxing power and then transfer revenue to local authorities. My heart favours such a strategy, but the political economist knows it can be a recipe for disaster, because central government will then want to control local body spending.

You see this when members of District Health Boards, for whom you will be voting, complain that they have little discretion. This may appear to be a struggle between the elected members and the management (a problem in territorial and regional local bodies, too), but it is underpinned by the fact that all the revenue comes from central government, which then imposes rules that reduce local autonomy.

A good example of what a disaster this can be is in English local government, where most of the revenue comes from central government and, as a result, local spending is severely circumscribed. The tensions there are palpable: they brought down Margaret Thatcher.

Shifting to user-charges is one means of reducing rates pressure. Locals still have to stump up the cash, but it is now related to what they consume and payment is usually less lumpy. I, for instance, support water-flow charging. Something as vital – and as increasingly scarce – as water should not be provided free. (And why should those with swimming pools not pay more?) But I don’t support flow charging for wastewater because that provides an incentive to pollute the local environment.

Is there another local tax? I have long been a supporter of charging the Local Authority Petrol Tax (LAPT) at a level that pays for all the local transport system – roads and urban transport subsidies. No tax is perfect, and the transport lobbies will grumble (they would rather someone else pay for their roads). But let’s give the regional authorities the power to raise their LAPT to cover all the region’s local transport spending, and leave the locals to decide whether they would rather pay for it out of rates.

So you should vote in the local body elections on October 13: as much as you may support central government, you want local decisions made in your locality. Who you vote for is your own business – but give some weight to those who recognise that local autonomy also means local revenue.

GDP Targets

 I prepared this note on 2 October, 2007, for some colleagues, following a discussion on the relevance of GDP targets.
 

Keywords: Growth & Innovation;
 

As far as I know the only government reference to getting back into the top half of the OECD on a GDP per capita basis is in the Growing and Innovative Economy  document. The government quickly dropped the target – I believe on Treasury advice.
 

The target seems to have come from the Auckland business community in about 2000, and was taken up by Jenny Shipley in opposition as a stick to beat the government. There does not seem to have been any systematic analysis of the implications of the target. Had there been it would have soon become evident that it was ‘aspirational’ rather than realistic.
 

To get back to the OECD average we need to add about 26 percent to GDP per capita more than the OECD average growth rate, over some period. Let’s say ten years so we would have to grow at about 2.4 percent a year faster. Our actual GDP per capita growth rate over the last ten years has been about 1.7 percent p.a. So what we are talking about is boosting the rate from 1.7 percent p.a. to 4.1 percent p.a, that is more than doubling it.
 

In practical terms this means that, say, any farm or business has to more than double its planned productivity growth. That is quite a challenge. One would hope the workplace reforms being pursued by Business NZ and the NZCTU are doing together would boost productivity growth but I doubt that they, in their wildest dreams, imagine that they can more than double it across the whole economy.
 

This is arithmetic. Economists like to look below the numbers to what is actually going on. Ideally, we would like to explain the gap, rather than just measure it. In recent years there have been a number of attempts and we have identified the following sources:
 

1. We appear to have less capital per worker than Australia;
 

2. We appear to have a slightly inferior industry mix (that is we have more a balance towards low productivity industries);
 

3. The international measurement regime discriminates against economies whose exports suffers from trade barriers like our agriculture (so a successful Doha Round outcome will lift our measured GDP per capita without us doing anything – there are gains from our doing things as well).
As far as we can calculate, these three explanations do not explain all the gap. Perhaps they explain less than half. So we have to fall back on things we cannot measure such as workplace productivity, labour force skills and technology/innovation. Of course we should do something about them, but we do not have much feel about how big a difference they my make.
 

Another way of thinking about the problem is to ask when the New Zealand was last in the top half of the OECD (on this measure). The answer is 1985, just before the reforms were implemented. It is not widely mentioned but the consequences of the reforms were the longest measured recession (falling per capita GDP) experienced by the New Zealand economy – some six years.  (It is possible there were longer recessions before 1940 but our measures are not precise enough to capture them. There were deeper ones of course, notably in the early 1930s.)
 

Let me avoid the obvious political conclusion, but make the following technical one. If it took 15 years (from 1985 to 2000) to get well below the OECD it seems likely it will take at least 15 years to get back. Much more actually, because as an important paper by David Mayes, my successor at the NZIER, pointed out, it is easier to destroy than rebuild. (The paper is called Changes, published by the NZIER in 1986, but is not on the web.)
 

I imagine this was the sort of technical advice the Treasury and the MED    gave, but I suspect the politicians abandoned the target for a quite different reason. It is politically unwise to set a target over which they have so little influence but can be held to account by opposition rhetoric.
 

As well as the problems with the arithmetic, and the lack of measurable knowledge, and the embarrassing failure of the reforms, there is another reason why economists are uneasy about such targets. It is nicely illustrated by the last time one was seriously pursued. (I have a list of less serious pursuits if anyone is interested.)
 

Coming out of the 1968 National Development Conference there was a planning exercise aimed at raising the growth rate of the economy. It happens that I think they misunderstood what was happening to the economy, but that need not detain us here. What was important was that, insofar the government took the policy recommendations seriously, they probably damaged the economy by stretching it faster than was feasible in the long run. (We all know of promising young athletes who have had their career ruined by trying too hard.)
 

Leaving aside the political downside, that is the danger of the GDP target approach: that some business will take the targets too seriously and bankrupt themselves (and demand government assistance because it was not their fault).
 

That does not mean we should not have targets, but they need to be at a lower level and be realistic in the sense that the government can do something effective to attain them. So I support a nationwide broadband roll-out within ten years. I’d also like to see waymarks in the interim.
 

And I would support other similar targets. I’ve suggested we should have a four lane roading network between the seven main urban centres within twenty years. (There are some supplementary targets with it, including the standard of the railway network.) I observe the government is beginning to set itself targets for global warming emissions, electric cars, and so on. Good. Let’s make sure they are feasible, and hold (subsequent) governments to account.
 

But let’s not set targets that we have not the foggiest idea of how they may be attained.
 

Often we are going about it the right way. Its called the ‘bottleneck’ approach to government policy. Identify a bottleneck and see what you can do about relieving it. We have a very honourable record – a list of areas where we have identified as crucial and either given the government a hurry on, or done something myself. For that approach targets do have a role.
 

Sorry if this has gone on too long. These are things I have been thinking about for many years.
 

Go to top
 

Footnote.
 

I cant resist dealing with another arithmetic target proposed without analysis. There is the claim that we must catch up with Australia.
 

Now, it is quite correct that the gap is a threat to New Zealand, in that New Zealanders may migrate to Australia for higher wages. But when did the gap begin to open out? Which year?
 

As it happens it began in 1966. (Politicians who are only thirty years behind events strike me as the norm for NZ.)
 

More important, why?
 

  My conjecture –  supported by the evidence –  is that when New Zealand was hit by a collapse in the price of coarse wool in 1966, Australia was protected by being into fine wools. Moreover, and probably even more important, the Australian mining boom started in the late 1960s. This has lifted the Australian economy, while we have had no such lift.
 

The policy implications of this are not obvious. Better to ignore the analysis and get on with the rhetoric. J
 

Go to top

Seeking Sustainability

 

This is a note I prepared for some colleagues. written on October 1, 2007.
 

Keywords: Environment & Resources;  Governance;
 
Seeking sustainability is like transforming the economy. It is always going on and there is no once in a lifetime policy, although (as for the economic transformation) there are periods of acceleration.
 

Definition
 

Let’s define the sustainability issue as follows
            – Sustainability is a strategy which does not compromise future generations; and
            – A sustainability policy is one which pursues sustainability in a politically robust way.
            – By politically robust it is meant that the policy objectives and framework will largely remain in place at least a generation out. (The crucial implication is there is a wide cross party political consensus for such a policy.)
 

(Probably the definition could be improved but will do for this stage.)
 

Existing Sustainable Policies
 

When I look at the spectrum of policies that the country has, I suggest the following could be described as ‘sustainable’.
 

1. Fisheries (since the early 1980s) – the ITQ system, although there is a struggle with the parameters;
 

2. The Conservation Estate (since the late 1980s) – the acceptance that certain areas are not primarily for development.
 

3. Public provision for retirement (since the early 1990s) – following the agreement between Labour and National. Note that again there are some disagreements over parameters especially rates (NZF) and age of entitlement (me).
 

4. Settling Maori Grievances (from about the mid 1990s) – although I accept there is some looseness in the policy framework, and individual settlements can be very fragile where there is conflict between iwi (as in the CNI negotiations).
 

5. Indigenous forests (2000)
6. Global emissions (since about a fortnight ago?) – this might be a bit optimistic, but I was heartened by the national acceptance. We will have to wait to see whether it beds down.
 

We can add other items for the list. The Rule of Law is one. Bipartisan Foreign Affairs may be another, although I am not expert enough to judge. There may be some in education, although I cant help observing that there are always calls for what amounts to revolutions there.
 

One, I almost put on the list and then changed my mind, is fiscal sustainability. We have made big improvements since the 1980s, and there is a general acceptance of the principle by most parties. However the 2005 election shows that the parameter issues are too technical, for me to be really confident that we will not have an outbreak of fiscal instability sometime in the next decade.
 

I guess the point about the previous paragraph (aside from my concern to develop fiscal sustainability) is that we need a reasonably rigorous standard in order to add to the list.
 

The Immediate Future
 

The following seem to me to be reasonably low fruit.
 

7. The broadband roll-out (at least in terms of long term goals, although perhaps not the immediate path to them).
 

8. The long term response to peak oil. (Not the short term because again the immediate path will be contested.)
 

9. Water
 

10. Private provision for retirement. (We may almost be there with Kiwisaver.)
 

(It would be a very full policy creation process if we could get all of these in the next three years.)
 

The Policy Creation Process
 

When I reviewed the first list, I was struck that in each case (with one exception, I’ll come back to) the implementation of the sustainable policy followed a leadership process, in which the government took the leadership and imposed the policy, with the opposition packing behind it after implementation. (There had to be a consultation process, of course.)
 

What Guy Salmon’s report on Nordic decision-making suggested that there was an alternative approach which may be perhaps more appropriate for an MMP regime. In this the political parties agreed on the policy framework before it was it was implemented.
 

Let’s call this the ‘pre-implementation consensus approach’. PICA (Perhaps someone can think of a better expression.)
 

The one New Zealand example I can think of is public provision for retirement where the framework was the result of negotiations between the government (at the time National) and the opposition (then Labour) plus the other parties the outcome of which was subsequently implemented (the majority of parties were keen to get the item off the political agenda).
 

Guy is saying that this process happens much more frequently in the Nordic countries – probably because they have a longer tradition of MMP whereas the leadership process probably reflects FPP.
 

Conclusion
 

The general implication is that we may move more frequently to the use of PICA as MMP beds in. The practical implication that while our goal may be further policy sustainability, we may need to be concerned with accelerating the process by which to make this come about.
 
As a footnote, there is also some short term policy areas where we may get consensus. (A possibility is innovation policy.) However, while we may be able to get considerable consensus for a policy in the short term, the policy frameworks in such instances are likely to be very different in a decade as we learn from our experiences.

Value Judgments

House prices can be fickle but debt is loyal to the end. 

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Listener: 22 September, 2007. 

 

Keywords: Business & Finance; Macroeconomics & Money; 

 

What is the value of your house? 

 

You might quote the “rateable value” given by Quotable Value for local authority tax (rates) purposes. Or you could go to a land valuer, who will use a similar procedure to estimate the amount that would be paid for the home if it were sold on the open market. 

 

Actually you do not get a “value”, but a market price. We’ve all heard the joke about economists knowing the price of everything and the value of nothing. But at least they know the difference. 

 

It explains why the real value of your house, with all its conveniences, memories and comforts, may not change much, whereas the price can rise as people bid more for housing. 

 

Typically they don’t pay that price themselves. Instead, they chip in some of their own money and a financial institution provides the rest by way of a loan. So lenders too are involved in setting the price. When they’re flush with funds, as they have been recently, they are willing to lend more, and, as we’ve seen recently, house prices rise. 

 

Economists have long struggled with the conundrum of the meaning of price. We have a theory, which I shall spare you, but sometimes it seems circular. Why did the value of your house increase from $400,000 to $600,000? Because people were willing to pay more for it. Why were they willing to pay more? Because the price of housing went up. 

 

The point of the last few paragraphs is that there is no absolute meaning to the price (or market value) of your house. On the other hand, there is an absolute dollar meaning to the debt secured on it. That $300,000 mortgage means that you have promised to pay off the debt according to an agreed plan. If you don’t, the lender is entitled to sell your house, pay off the debt (and associated expenses) and give you anything left over. That is the agreement you made when you accepted the mortgage. 

 

But if the debt is absolute and the price relative, could not the price of the house fall below the mortgage? That can happen, and not just for housing. In the financial system there are myriads of deals where a money debt is secured on an asset whose price is not as absolute. They too depend on asset valuers, including credit rating agencies, who are not always as reliable as house valuers. Sometimes they get their prices dramatically wrong, or market conditions change. 

 

So sometimes the value of the debt ends up exceeding the price. Not very often – well, not usually. But sometimes, and now seems to be one of those times, it happens. 

 

The most obvious local cases are the ones where some finance companies have found that the market value of the assets in which they have invested is less than the debts they have secured on them. In such cases the depositors who placed money in these institutions have lost all or part of their investment. 

 

Nobody need have stolen the missing money. It typically disappeared in a manner not very different from the way in which the price of your house went up. Except that, this time, the price went down. 

 

The possibility of the debt exceeding the market price does not apply just to housing, although the US (sub-prime) housing market is currently the main worry. As I said, there are myriads of transactions in which an asset’s “value” based on the market’s willingness to pay is balanced against a debt with an absolute monetary value. Usually there is a margin between the two, but because market prices fluctuate, the margin can be squeezed or even go negative. 

 

At which point things get uncomfortable for the investor, and, if it happens widely enough, for the entire financial system. As I fear this column may one day have to report. 

 

The Direction Of Science Education

In September 2008 (16-18) I attended a Wellcome Trust sponsored conference in York England on the value of science education. We were invited to submit comments. Below is mine.
 

Keywords: Education; Growth & Innovation;
 

Dear Conference Delegates,
 

You invited comments coming out of the conference. The following is a short one.
 

I was greatly troubled by some of differences in the gender responses reported in the Relevance of Science Education survey.
 

I cannot recall the exact questions but one was along the lines as to whether the respondents wanted to work with their hands. The young women tended to say ‘no’. But don’t they do needle work and bandaging? Another result was that the young women were not favourably disposed towards technology. So they are not going to become nutritionists, nurses, physiotherapists or radiographers?
 

What this tells me is that the survey was answered with a particular framework, which defined science narrowly, in a way that made women seem anti-science. To be provocative, I suggest that what was happening was that science was being defined to be anti-women.
 

I know of no evidence that women are less interested in the real world than men, and I would conjecture that women may even be more concerned with scientific issues in their ordinary life, given their greater involvement with health issues.
 

This suggests that we may be tackling the gender problem the wrong way around. Instead of trying to make girls like science, perhaps we should try to make science like girls, that is expand our notions of what has to be taught and inspired.
 

I realise that I am saying that we need to expand the agenda beyond chemistry and physics to encompass biology (and ecology). But young women should not be long into biology, before they realise they need to understand concepts from physics (such as energy) and chemistry (the difference between a fluoride and fluorine).
 

Ultimately the best way of turning young women on to science may be by reaching out to them and their biological interests by a STEM (science, technology, engineering, mathematics) course for biology. 
 

Brian Easton,
Independent Scholar,
New Zealand.
 

PS. Perhaps I should mention that while I am an economist, my university training was in applied mathematics (including statistics) with physics and chemistry. I remain gripped by these subjects, but wish I had done more biology (which was taught dreadfully at my all boys’ school). I admit that in New Zealand biological sciences may have a relatively higher priority than in Britain, say, but insist that is all the more reason why our biologists need a sound base in chemistry and physics (and mathematics).

The Current State Of the Public Sector: an Economist’s View

The 11th Annual Public Sector Finance Forum. 10 September, 2007  

 

Keywords: Macroeconomics & Money; Regulation & Taxation; Statistics; 

 

It has been my lot to be asked to give two papers to this Public Sector Finance Forum. Today’s paper might be called the ‘macroeconomics’ paper, in which I look at the size of the public sector and its impact on the economy as a whole. I shall not pay much attention to the quality of the public sector expenditure which is the focus of the second paper, with its microeconomic focus. 

 

While in principle the papers cover separate topics, they are connected by a similar theme. Too frequently public discussion misuses financial data. I am not blaming those who created the data for this misuse, but it is vital that they understand how their technical constructs can be distorted into public ignorance and misleading political rhetoric. In my view, those who construct data have some responsibility to ensure there is an adequate public understanding of it – a position I hold for my professions of econometrics and social statistics. 

 

Even so, I recognise that there are forces outside our professions which lead to distorted use of the data we construct. Nevertheless we must try to resist them, and at the very least ensure there is an honest account available for the serious and diligent. . 

 

Today I am going to look at three macroeconomic issues. 

 

1. How big is the government in the economy? 

 

2. What are the implications for taxation? 

 

3. What is the net fiscal impact of the government on the economy? 

 

My short conclusion is that these are important questions to ask, but difficult to answer. Too often the answers proffered to the public involve the misuse of financial data for purposes of political exaggeration. I’ll explain too, how this exaggeration can lead to policy difficulties. 

 

How Big is the Government in the Economy? 

 

A frequent political debate in New Zealand is about the size of government. One side argues that the government spending is too large, that it is weakening economic performance, and that it should be reduced. The other side argues that there are serious social deficits, that they can be addressed by additional government spending, and it should therefore be increased. 

 

If asked how big is the government sector, my guess is most people would talk about a figure of 30 or 40 or even 50 percent of GDP. They would probably be referring to the estimates prepared by Treasury and reported in the fiscal outlook. For the record two figures are provided 

* Total Crown Expenses are expected to be $67.9b for the year to June 2008, or 41.2% of GDP; 

* Core Crown Expenses are expected to be $52.8b for the year to June 2008, 32.0% of GDP. 

 

That two figures are provided are an indication that we are in the murky world of definitions which matter. The difference between the two is that the Total Crown Expenses includes spending by Crown Entities and State Owned Enterprises. This means very different types of expenditure get added together. For example, along with ordinary state spending such as by hospitals and schools, total spending includes such things as expenditure by the lotteries commission on winnings and charities, and on the running state owned power companies. Note that neither figure includes Local Government except where it is funded by the Crown. The DHBs are in, but rates funded expenses are out. 

 

Are we comparing like with like when the expenses are a proportion of GDP? After all the denominator is a measure of production, while the numerator is a measure of outlays, quite conceptually different notions. A better denominator might be GNE, Gross National Expenditure, which currently exceeds GDP because the country is borrowing to fund its investment and even some of its consumption. Perhaps better statements would be 

* Total Crown Expenses are expected to be 38.0% of GNE, for the year to June 2008; 

* Core Crown Expenses are expected to be 29.5% of GDP, for the year to June 2008. 

 

But even that does not see quite right since some of the expenses of government are actually spending by individual. For instance a pensioner using New Zealand Superannuation to purchase bread appears as a government expense on these measures. If we subtract out subsidies and transfers we get 

* Total Crown Expenses (excluding transfers and subsidies) are expected to be $48.4b for the year to June 2008, or 27.1% of GNE; 

* Core Crown Expenses (excluding transfers and subsidies) are expected to be $35.2b for the year to June 2008, 21.3% of GDP. {Exact figures are not published. These are estimates.] 

 

It also makes sense to separate out publicly provided services to individuals from collectively provided services. For instance, if you get treated at a public hospital, that appears in Crown Expenses even though you are the only direct beneficiary. That is quite different from military spending, where the benefits are to the community collectively, and not to separate individuals. 

 

How much is this individual directed spending? We dont know, but if we assume that 80 percent of public spending on health, education is on individuals, we get a figure close to half of all core government spending for this purpose, so again the proportion looks smaller. 

To give some final indication of the complexities of the measure I turn to another data source, the National Accounts, which use different definitions, but which include local government in their totals. They are currently available only up to the March 2007 year. 

 

In the 2007 March year, General Government Final Consumption Expenditure (that is including all levels of government spending for both collective and individual purposes, but excluding transfers and the activities of state owned enterprises) amounted to 18.6 percent of GNE. To that you might want to add a further 3.0 to 3.5 percent for government capital formation, including by its producer enterprises. In total, then we are talking of the total government use about 22 percent of national spending. 

 

Another measure available in the National Accounts is the size of the government administration and defence sector, which treats the government as a production sector, and so may be properly compared to GDP. It is only available in 1995/6 prices, but in the most recent year the government production sector contributed only 4.5 percent to GDP. What happened to the rest of it? Some government spending is in other sectors. Education and health services are in Personal and Community Services, which is a much bigger sector. And the government buys inputs from the private sector – from farmers, manufacturers and so on – which appear in its spending but not in its production. 

 

Had I the time, I could deluge you with further measures – I have not touched on the employment ones for instance. But I hope the message is clear. Those who talk of the government taking over half the economy – or even a third – are misleading themselves and their audiences. The most likely figure is between a fifth and a quarter of the economy. 

 

Moreover, when we look at the content of that spending, we conclude that the actual government administration is a small proportion of that total – probably about 5 percent of total production, certainly much less than 10 percent. It is true that there is administration associated with the remaining spending, but that administration occurs when the product is delivered by the private sector too. It is said that 25 percent of the American health budget – one of the most private driven health systems in the rich world – is spent on its administration. 

 

One question you might want to ask is how does the proportion compare with other countries. Say other OECD countries, because they are more like us and the statistical base for comparisons is better. 

 

The latest OECD data is available for 2004. Ranking by general government spending – roughly comparable to Total Crown Expenses but including local government – as a proportion of GDP, the OECD reports New Zealand as 23rd of its 30 members. We have the same ranking by General Government Consumption Expenditure: 23rd out of 30. (Ranked by Social Security transfers, which is one of the main differences between the two, New Zealand is 22nd out of 30.) 

 

(The remainder of the paper uses GDP as the denominator as a scaling device.) 

 

International comparisons are treacherous. New Zealand boosted itself in the rankings by grossing up New Zealand Superannuation and social security benefits to before tax incomes and then treating them as taxable for income purposes. That means that money which never leaves the government accounts appears in its spending measure. Moreover government expenses include the full cost of civil servants pensions accruing as part of the personnel costs, whereas most countries only report that cost when it is paid out to pensioned off staff. 

 

There may be good reasons for such practices, but the point here is since other countries do not do it, international comparisons are distorted. However, we may have accounting practices which lower our measured spending compared to other countries. 

 

But in summary, I think it safe to conclude is that the New Zealand government is not a big spender by international standards. Then why do some people go on about the size of government spending, often making exaggerated claims as to its size and significance? 

 

What are the Taxation Implications? 

 

One answer is that they consider that New Zealanders pay too much tax. In the end taxation covers government expenses – I’ll talk more about this equation in the last third of this paper. Are New Zealanders highly taxed? 

 

I’ll not go through the sort of calculations I have just done for government spending, but let me remind you definitions matter. For instance we could markedly reduce the apparent level of taxation by defining benefits and the like as negative taxes. A smaller reduction would be to drop GST from government spending, and not to gross up transfers. 

 

On existing definitions the OECD ranks New Zealand as 20th out of 30 in terms of total government revenue, which includes non-tax revenue sources and local authority rates. Remember too, the effect of grossing up transfers. Thus it is hard to argue that New Zealand is particularly highly taxed in comparison to other rich countries. 

 

Even so, there has been extraordinary effort to demonstrate that New Zealanders are highly taxed and that the economy would perform better were tax rates lower, often using almost fraudulent statistical procedures. The alacrity with which some advocates seize upon incompetent analysis to justify their views suggests a debate more driven by enthusiasm than competence. 

 

Despite the vigorous lobby which argues that the levels of taxation are too high and are inhibiting economic growth the evidence is more ambivalent. Certainly there is research which concludes that high taxes affect economic performance, but there is also research which concludes it does not. The pragmatist is likely to conclude that below certain limits the impact of tax levels on the economy, if any, is of uncertain sign (it may be positive, it may be negative) but in any case it is very small. What that maximum level is, is unclear. One cannot but observe high tax European countries which are among the most prosperous in the world. By their standards New Zealand is not a high tax country so it seems reasonable to conclude it is well below the threshold where taxation damages economic performance. 

 

Moreover, the efficiency of the tax system matters. The average tax rate measure takes no account of the design of the tax regime, treating the clumsy Muldoon personal income tax system as equally effective as the elegant Douglas one. 

 

Nor does the research evaluate whether it matters what the tax revenue is used for. The public may want the collective services supplied or the different pattern of output that the pattern of taxation and spending may generate. They may want more education, more environment, more culture and heritage, more preventative health care. Some public expenditure may boost economic performance, some may add to social coherence. It may be spent efficiently or wastefully. Nor should we forget that some government spending displaces private expenditure: in the case of health services. public funding may be more efficient that compulsory private insurances. 

 

At this point we are past the grand rhetoric of more or less government spending, and the higher or lower taxation which goes with it. Instead we are looking at individual spending programs and asking whether it is worth more than the tax which has to raised to fund it. While there is some technical elements to any such judgements, in the end they are political ones. A group of politician has to say we want that public expenditure but not that public expenditure and that will involve raising taxation to this level but not beyond it. That is a practical exercise which, in my opinion, our cabinet system does pretty well. 

 

It ends up with about half the population grumbling they want more spending and the other half arguing they want lower taxation (or, very often, more than half wanting both of these). The government cannot win, particularly when an opposition political party announces it supports lower taxation and greater government spending, sometimes on the same day. 

 

The rhetoric is really about the political judgement of the benefits of higher or lower taxation and the balance of public and private spending. Each of us entitled to an opinion: economists’ opinions are no more valuable than any other persons, even if some try to hide their political prejudices behind bad technical economics. The economist’s task is to insist there is a tradeoff – there is no free lunch – while the braver of us may press those who want to cut taxation by asking them to identify which public spending they want to cut, and equally to press those who want to increase public spending by asking what taxes they want to increase. 

 

There may seem to be an easy option of claiming that tax cuts come from efficiency gains. In tomorrow’s paper I shall argue that obtaining such gains in government is harder than the rhetoric of opposition. The other easy option is to claim that one can have tax reductions and government spending by government borrowing. It is this topic which makes up the last third of the paper. 

 

The Government Deficit, and the Impact of the Government on the Economy 

 

Let me begin by making the simple point that a government deficit is a tax on future generations – it’s a timing effect. The ability to borrow to increase expenditure over revenue does not break the connection between tax revenue and government spending. The connection is now over a longer period since debt has to be serviced and repaid so there is less available for spending in the long run. 

 

It is lesson we should have learned from the 1980s, when the government borrowed heavily to provide high public spending while revenue was weak as top income tax rates were lowered and the economy stagnated. In the 1990s, tax rates had to be held high while we paid for the profligacy. Often the balance was at the expenses of social spending incurring a social deficit. Much of today’s government spending is dealing with that social deficit and the infrastructural backlog from the 1970s and 1980s when governments balanced its books by cutting back on necessary capital investment. 

 

Perhaps I am passionate about such matters, beyond the technical analysis I usually offer. That is because I judge it immoral to solve our immediate problems by loading debt onto our children and grandchildren. 

 

It is not a question of left-right politics in the way that spending-taxation often is. You will recall that many in the caucus of the first Labour Government thought there was no government budget constraint and that additional spending could be financed by Reserve Bank credit. Today there remain people on the left who hold similar views. On the right both the Ronald Reagan and George Bush junior governments generated enormous government deficits, but George Bush senior, as well as Bill Clinton, took measures to restrain and eliminate the deficits. 

 

On the other hand, New Zealand has been marvellously lucky that it has not had the fiscal irresponsibility of Bush junior and Reagan over the three-quarters of century since it had a Reserve Bank. There have been some close runs. I have already mentioned the social credit wing in the Labour caucus in the 1930s, while the fiscal rhetoric of Norman Kirk was not very disciplined although he offset that with the doughty Bill Rowling as his Minister of Finance. 

 

The sheer quality of our Ministers of Finance has been one of the highlights of New Zealand’s political record. Fortunately they have been able to resist the spending predations of other cabinet ministers and parliament, in part because they have been backed by their prime ministers. 

 

The major exception was Rob Muldoon who knew the importance of fiscal discipline, but got away with offsetting large deficits by inflation reducing the value of government debt (reminding us that inflation is a form of taxation). 

 

Muldoon had already been fiscally compromised, when he promised to make National Superannuation, as it was then, markedly more generous. He said he could do it at a cost of .2 percent of GDP. In fact the fiscal cost was closer to 2.5 percent of GDP. Basically Muldoon confused a couple of incomparable numbers, thinking that the immediate impact of his scheme could be compared by the full impact of the Labour scheme fifty years later. The resulting surge in public spending without an offsetting nominal tax hike had the economy struggling through the late 1970s and beyond. It was paid by fiscal drag, as taxes rose faster than inflation, and yet the fiscal drag fuelled inflation as income groups fought to maintain their income relativities. That is why inflation was high and endemic under Muldoon. 

 

An almost as disastrous election promise was made in 2005, when the National opposition promised substantial income tax cuts together with increases in some government spending. The boost to national expenditure would have been over 2 percent of GDP, comparable to the Muldoon promise. 

 

Suppose National had been elected to office in 2005 and implemented its promise. It had no room to make substantial spending cuts, although no doubt some programs would have suffered. I note too that it may have hoped to shift some of the investment spending off-balance sheet by pubic-private-initiatives. But whatever the merits they may have in improved efficiency, they do nothing to reduce the fiscal impact of the investment. 

 

The promised fiscal inject would have had a dramatic impact. Assuming that the Reserve Bank would have resisted the inflationary pressures, interest rates would have had to be even higher than they are today, as would the exchange rate. Many people’s interest bill would have risen by more than their tax cut. Imports would have boomed. Exporters would have been struggling even more. Once the current international financial turmoil commenced our financial system would have been in far greater trouble than we are today. 

 

Over the last 15 years our Ministers of Finance – Ruth Richardson, Bill Birch, Winston Peters, Bill English and Michael Cullen – have been assiduously building a strong government balance sheet in preparation for such an external shock. We cannot avoid the consequences of international financial turbulence but we can prepare for it. No other rich economy may have as robust a public balance sheet although that could not be said for the New Zealand private sector, which is carrying too much debt. Implementation of the Opposition 2005 election promises would have reduced that robustness, and compromised the economy. We were exceptionally lucky the policies were not implemented, given today’s international monetary turmoil. 

 

The point of raising the topic today is to draw attention to the fact the policy arose from a misrepresentation of an item in the Crown Accounts. At the time this aggregate was called OBERAC – operating balance excluding revaluation and accounting policy changes – but following the revised GAAP standards introduced in July, the item is replaced by OBEGAL – operating balance before gains and losses. 

 

In election year 2005 Operating Balance out-turned at $11.5 b (or 7.3 percent of GDP). (In that year the OBERAC was $8,486m or 5.4% of GDP.) Being seen as a surplus it was widely thought it indicated that there was considerable opportunity for major tax cuts. The public rhetoric focusses upon this particular amount, although it is clear that the vast majority who quote it do not have the slightest idea what the aggregate means. They are unaware the extent to which most of the OBERAC/OBEGAL surplus is subsequently used for public investment including in State Owned Enterprises and hospitals, roads, and schools, on funding student loans and the New Zealand Superannuation Fund. In other words, the money that OBEGAL represents is not available for tax cuts, because it is already spent. Nevertheless, journalists and commentators persisted in the belief that the OBEGAL surplus justified income tax cuts. 

 

This was nicely illustrated earlier this year when a week before his budget speech, Minister Cullen, gave his regular speech to the Canterbury Manufacturers Association, setting out his budget analysis. Cullen scrupulously kept to discussing the cash surplus, roughly the amount left after all the additional spending items are deducted from OBEGAL. His message was that the fiscal position was deteriorating and there was little room for increases in spending or income tax cuts. (There is expected to be a cash deficit of about a billion dollars this year, not a surplus.) One journalist accurately reported what Cullen said, but could not resist adding his own interpretation which involved leaping from the cash position to the OBEGAL surplus and demanding income tax cuts. 

 

Clearly the journalist did not understand what he was writing about – which may be no surprise. I am frequently struck by the sheer stupidity of the public rhetoric. Does anyone seriously think that had there been room for a tax cut in 2005, the incumbent Minister of Finance would not have given it? Cullen is one of the cleverest and most politically astute Ministers of Finance we have had, and generally they are well above the average of their parliamentary colleagues and journalists. Had he the opportunity, would he have forgone income tax cuts in election year? If you think ‘yes’, you must assume he is as stupid as those who think OBEGAL is a valid measure of the government’s ability to cut taxes. 

 

OBERGAL is but one of a number of indicators of the government’s fiscal position. Highlighting it to justify tax cuts is irresponsible and incompetent – which does not mean that people wont do it. 

 

Unfortunately there is no single measure which unambiguously indicates how big a tax cut can be justified. Even retrospectively there are a variety of indicators including those in the 2002 Treasury Working paper on the topic, Indicators of Fiscal Impulse for New Zealand by Renee Phillip and John Janssen. A wider set of fiscal indicators is reported in the Budget documents in a section titled Indicators of the Government’s Fiscal Performance (pages 109 to 114 of the 2007 Budget)” 

 

The section reports at least nine indicators. If you wanted a single measure I would probably use the prospective cash position. It is expected to be negative for the next few years – in a certain sense the government is a net borrower, although the crown debt to GDP ratio is not expected to rise. My sense is that the fiscal position is at the top of the acceptably prudent range although I might go looser if the world economy turns to custard. That is a matter for a thoughtful discussion. The one thing you can be sure is that the OBEGAL measure will hardly appear in it. 

 

So we have here an example of how a technical measure designed for a particular purpose has transmuted into a popular measure with a quite different meaning, and how that transmutation might have led to policies which could have wrecked the economy. And that is why those who constructed the measure should vigorously participate in the public debate to ensure that users understand what it is they are using – even journalists and politicians. 

 

Let me finish this section by saying I have been tough on the National Party’s 2005 fiscal policy, for the simple reason that there would have been an economic disaster had it been applied. We are very fortunate it was not implemented. My reading of the National Party’s current fiscal intentions, is that they are prudent, intelligent and common sense – as we would expect from the current Opposition spokesman on finance, Bill English. 

 

The Gross Debt Target 

I want to finish with one further illustration of how a measure can inadvertently lead to sub-optimal policy. The government currently has a gross debt target, which restricts its ability to borrow in one currency and invest in another since that would increase gross debt even though net debt would be the same. Many would argue that we do not want the government speculating in financial markets. I agree. However the government has a large financial portfolio and it needs to manage it to minimise the cost of Crown borrowing. 

 

As it happens, without the gross debt target, the government could reduce its borrowing costs by about 60 basis in points, without risk, by borrowing in New Zealand currency, investing the receipts in a foreign currency, and purchasing foreign exchange cover so there is no currency risk. In essence the Crown would be offsetting the carry trade, using its advantage as a sovereign borrower to reduce its costs. One of the consequences of leaving this financial market anomaly is that it has made monetary policy more tense than has been necessary. Essentially the Reserve Bank has had to push harder on the short term interest rate (the Official Cash Rate), in order to attempt to reduce liquidity in the mid term range in which the anomaly occurs. 

 

Thus the effect of the government’s gross debt target is to raise the cost of Crown borrowing, while putting additional pressure on interests rates and probably the exchange rate. Once more we have an example of how a measure designed for one purpose can lead to inferior policies if it is misused. 

 

Conclusion 

 

To conclude then the technicians who create and evaluate such measures have a responsibility to enure the public understands them. That is the theme of this paper. 

 

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Shaping the Way We Play: an Economist’s View

The 11th Annual Public Sector Finance Forum. 11 September, 2007  

 

Keywords: Governance; Regulation & Taxation; Statistics; 

 

In my paper yesterday, I argued that we too frequently misuse data for rhetorical and political purposes. Today’s paper is an extension of that theme, but it focuses on a less conscious process, while providing an economist’s perspective of some accounting practices. Let me make it clear I am not arguing that accountants are wrong. Rather I am going to argue that accounting is right, but in a limited way and that a lack of appreciation of that limitation means that we distort the behaviour of the agencies to which the accounting is applied. 

 

To do this I am going to have to talk about some of the relations between accounting and economics. I want to begin with a law taught to me by a former professor of accountancy, Dr Don Gilling, who has just given a paper to this conference. Because the law is such a useful one, it deserves a name. I shall call it Gilling’s Law, although I know Don would be happy to defer to someone else who has priority, if there be one. Don is a scholar. 

 

Gilling’s law states The way the game is scored, shapes the way the game is played. It is a simple idea, nicely illustrated by rugby. When I was a boy, a big match between two evenly balanced sides typically ended with a score line of something like 9 to 6 – three penalties to two. Then the scoring system was changed. Tries became worth five points instead of three, so you scored much more for a try than a penalty. Moreover, bonus points were introduced into tournaments. Score four tries and the team got an extra point on top of the four for a win, while a losing team that got within ten points of the winning team also earned a bonus point. The result of this incentive to risk scoring is that today’s great matches are thrilling affairs involving many tries often with forty or more points scored between the teams. Changing the scoring system changed the way rugby is played. 

 

That change was intended. Today I am more concerned with unintended consequences of changing the scoring system. For instance consider GDP, or Gross Domestic Product. Its conceptual framework was originally designed to enable economists to track unemployment, and later inflation and, even later, changes in the volume of material production. Nowadays, however, it is also used as a measure of national welfare and as objective which we should aim to increase and judge policy by. 

 

I dont know how many here have read the Narnian stories by CS Lewis. Those that do will recall The Voyage of the Dawn Treader in which Prince Caspian visits a number of islands in a picaresque adventure, in which Lewis explores some economic questions using an event in each island to do so. The first landfall is the Lone Islands on which there is slavery. Caspian orders the slaves to be freed. but the unpleasant island Governor Gumpas explains that it is ‘an essential part of the economic development of the islands .. Our present burst of prosperity depends on it.’ When the Prince insists, Gumpas goes on to say that Caspian does ‘not understand the economic problems involved. I have statistics, I have graphs …’. ending slavery ‘would put the clock back. Have you no idea of progress, of development’. 

 

Lewis is writing in the 1950s before the cult of GDP. No doubt today Gumpas would commission a consultant who would say ending slavery would reduce the island GDP by some large amount, and then Wilberforcians would come along with their consultants who would conclude that ending slavery would increase GDP by an equally large amount. Now, I have no problem at looking at the economic consequences of ending slavery, and accept one measure would be the change in GDP. But that is hardly relevant to the decision. Slavery is wrong. Whatever the economic consequences, it is wrong, and as Prince Caspian says, it should be abolished. At best GDP is a measure of material market product, and can be used as an intermediate indicator of human welfare. But it is not an ultimate objective. 

 

The Relevance of GDP 

 

Actually economists have known this from the beginnings. Look at J.K. Galbraith’s Affluent Society written in 1958. I know the worldly-wise and ill-read trot around as if they have just discovered the truth that GDP is not a good measure of welfare. But I was taught that in the early 1960s as a routine part of my economic training. 

 

As it happens, there is a theorem which connects GDP to human welfare. From it one learns how tenuous the connection is. Moreover, in recent years the key assumptions that more material product means greater happiness has been challenged empirically. That story belongs to another venue, but briefly it turns out that in rich countries incomes and happiness do not correlate very well at all. Your age and your matrimonial status are more important. One example from the research is that Americans are only as happy as they were 50 years ago, despite their material consumption more than doubling. 

 

We are not sure what this means but for today’s purposes I want to remind you how GDP connects to accounting practices. I simplify the economic theory, but there exist persuasive theorems that under certain circumstances, if each owner deploys her or his factors of production – such as capital, intellectual property, labour or land – to give the highest market reward, then material output or GDP is maximized. There are various caveats, but we dont need to pursue them today. What is relevant here is that for the principle to become operational we need a measure of the return on the factors of production particularly on the capital. 

 

That is where accounting comes in. Measuring the return on any activity is problematic enough, but in the case of the return on capital – on the owner’s savings in the enterprise which are taking the market risk – the measurement challenge is exceptional. 

 

I shall skip over the troubles of measuring capital and, consequently, of measuring income since its formal definition includes the change in capital, although I cannot resist pouring scorn on those who have misappropriated the notion into such concepts as community capital, cultural capital or social capital, without any understanding of the rigorous intellectual underpinning of the concept nor the foggiest idea of how their notion might be measured. . 

 

Accountants practically resolve the measurement problems of accounting capital in a similar manner that economists have when calculating GDP. There is a huge manual setting out the conceptual framework of the System of National Accounts together with the recommended practices to measure the concepts. Generally the approach seems to work without causing too many paradoxes, although we know they are lurking there, as the experience of Enron and its auditors remind us. Nor should we ignore the practical complications of measurement error and the need to make assessments of prospects. 

 

It is easiest to value capital assets traded in a competitive market. Mark-to-market seems sensible. But Enron had assets for which there was a no competitive market benchmark so they – as in the infamous praise of a former prime minister – ‘made it up’. That is sort of inevitable for big businesses which in part exist because they are a monopoly and hence are unique. 

 

Gilling’s law applies trivially. In business profits are the way the game is scored, and they largely determine the way the game is played. We are so familiar with this that we overlook an extraordinary implication. The function of the business is to seek profits. What it does as a business is for that purpose. To take an extreme case, suppose the business is a forestry company but it discovers it it is good at doing something quite different such as mobile phones. It does not say, ‘we are a forestry company so we dont make phones’. Rather it says we can make a bigger profit making mobiles, so we give up being a forestry company. 

 

The Nokia story is a little more complicated than that, and sometimes a business does not change direction because it thinks its key assets and skills belong where they are. Nevertheless what determines the success of a business is not what it does, but the profits it makes. Economic theory says: that if it does that, in certain circumstances it will contribute most to material production and – under certain psychological assumptions – to social welfare. 

 

Sometimes those circumstances and assumptions do not apply. What are we to make of the profit return then? Very often such activities end up in the public sector. There are numerous reasons but two important ones are businesses which a serious monopolies, or it may be that the economic institution has a purpose other than profit maximisation. 

 

Monopolies and Profits  

 

The first case is for businesses which are monopolies or experience strong economies of scale or some other such non-standard characteristic; network effects are another example. We can illustrate the difficulty with Telecom, a natural monopoly because of the almost unique link from exchange to home. It pursued maximum profitability, using its monopoly power to do so. 

 

It is hard to argue that the result was in the national interest or contributed to the maximisation of GDP. Today New Zealand is behind most of the OECD in its telecommunications performance – especially its broadband penetration. In recent years the government has been trying to impose a regulatory framework on the telecommunication sector to restrain Telecom’s use of its monopoly power. Hopefully that will improve the industry performance, with flow-on benefits to the rest of the economy. 

 

There is an argument that even with the same regulatory framework a publicly owned monopoly is likely to be less abusive of its monopoly power than a privately owned one. That IS sometimes the economics justification for the maintaining of some state-owned-enterprises in public ownership. 

 

The accounting profession argues that their principles and practices which apply to general firms should also apply to monopolistic ones. I have no problems with this approach. Every business is at least to a small degree a temporary monopoly. There is no discontinuity between the extremes of pure competition and monopoly. We need a comprehensive accounting standard to cover them all. 

 

However consider Gilling’s law. In the case of the pure competitor, the profit in the bottom line is a good indicator of what we as a society require from the business (subject of course to general laws, such as those which prohibit slavery) and so the interests of society are aligned with the interests of the owner. In the case of a pure monopoly the interests of the owner and of society as a whole are not aligned. Yet the bottom line still shapes the way the monopoly behaves. 

 

This simple lesson was overlooked when Telecom was privatised. The owners of the publicly owned entity – the government – gave directions to the company which had the effect of limiting its ability to exploit monopolistically. They almost certainly also reduced its profits. Those directions were abandoned by the private owners of Telecom in their pursuit of profit. As a result we ended upi with an inferior telecommunications system. The effect of changing the scoring system was that the game was played for the worse – unless you were a Telecom shareholder. 

So once there is a strong monopolistic element in a firm the profit measure becomes a weaker measure of how much the firm contributes to the economy. It is still important, but it is not nearly as decisive as for the purely competitive firm and so some more rules have to be added to ensure the game is played the way we want it to in the public interest. Creating the right regulatory framework is not easy but that is not my main theme today. My concern is that a set of proper accounting conventions leads to measures which can distort the economic game if it is used naively. 

 

Entities with Non Market Purposes 

 

A second case is where accounting can lead to the wrong behaviour is where the purpose of the institution is not a market led one, where – in effect – the aim is not to maximise GDP but to change its composition, and where the objective is about the quality of life rather than the quantity of production. 

 

This can be illustrated by The Treasury itself. Its purpose is not to make a profit. It would be astonishing were The Treasury to announce it was abandoning its present activities and going into, say, selling mobile phones. Even so we use broadly the same accounting principles and practices to record the funding flows in the Treasury as we do a commercial business including measuring its surplus, or profit. The logic for such an approach might be summarised in four useful outcomes: 

 

1. Using the same accounting conventions, albeit adapted for the particularities of the government sector, means that there is a commonality of understandings across the accounting profession rather than a muddle of special applications. 

 

2. The management accounting practices that are used in the private sector to reduce resource waste can, hopefully, also be applied in the public sector. The objective of efficient utilisation of resources applies even where the purpose of the entity is not profit generation. 

 

3. Comprehensive sets of financial reports enable the politicians and the public to assess what is happening to the funds provided to each government agency, enabling them to monitor its resource use. 

 

4. The accounting processes provide a reporting framework which minimises the element of surprise, as when an entity requires more funds than the central funder planned. 

 

But such considerations do not make the Treasury a profit centre, nor make it focus on its operating balance as an indicator of its success. This is so obvious in the case of the Treasury that we hardly need make the point. But there are government entities for which the same principles apply, but for which the points are overlooked and which the notion of a profit centre dominates when it should not. 

 

Entities in Market Environments with Other Purposes 

 

I illustrate this with one such entity: Television New Zealand. To do so, I need to say something about free-to-air television as a market activity. It exists as a strange hybrid in which the funder is not, or not simply, the apparent audience and as a result the purpose of the commercial activity is not clear. 

 

Consider a newspaper. You probably think of it as an item you purchase for its news and features content. However a considerable proportion of its revenue – typically more than half – comes from the advertising. In effect the advertising subsidises the content for the reader, who acquires a product at a price below the cost of production. 

 

However, the advertisers do not provide their revenue as a public benefit. They have a commercial objective, paying the newspaper for access to its readers. This means the newspaper needs to attract an audience of interest to its advertisers. I leave here a discussion about whether the two tasks – providing news to attract an audience and providing an audience to attract advertisers – are aligned. That there are multiple audiences leads to a very complicated analysis. It is sufficient to draw attention to the existence of the tension. 

 

A more extreme version of this tension is illustrated by give-away newspapers, whose funding is entirely from the advertisers seeking an audience. The reader cannot grumble about the coverage or quality of the paper, since it is free. 

 

So what about free-to-air television? What claim has the viewer got for television content, since like the give-way newspaper he or she is contributing nothing to its financing? Why should you grumble about TV3, say, when the rules of the game are that you can switch it off, or switch to a pay channel. Why is TVNZ any different? 

 

Media buffs will forgive me if I do not answer this question in any detail but merely observe that there is a view that TVNZ should just be like TV3, and it has been prepared for privatisation. Why do we keep it in public ownership? 

 

Reasons for public policy decisions are always complex, but a simple answer is that we believe that were TVNZ left to the market disciplines that private ownership would result in, as for Telecom, an inferior outcome. However in this case the performance measure is not the maximisation of GDP which private ownership of television failed to attain. In the case of TVNZ we want a different outcome – which might be summarised as a different composition of GDP. The public regulation of TVNZ is about using the entity for a different purpose, other than GDP maximisation. 

 

Now many people believe that despite these public interventions with their alternative objectives to GDP maximisation, the outcome has not been very successful. I have not the space here to evaluate such claims. We are concerned with the mechanisms which lead TVNZ to behave the way it does. 

 

The funding of TVNZ remains advertising – about 90 percent of its revenue comes from that source. Moreover we ask it to make a profit, according to standard accounting conventions. Admittedly there is a statement of intent with all sorts of noble sentiments about public broadcasting, and there is a little public money, the purpose of which is to enable the pursuit of those sentiments. But the TVNZ revenue stream primarily depends upon advertising, and is therefore driven by the necessity of finding an audience for its advertising clientele. If there exists a program whose audience is not of interest to the advertisers – say they are too poor, or too small, or too impervious to advertising – then the program is not given priority, no matter how worthy it is in terms of the public broadcasting sentiments. 

 

It is Gilling’s Law again. The score card is the profit line, the means of obtaining a profit is to seek audiences which attract advertising revenue, and so the game is shaped by seeking the audiences the advertisers want, rather than pursuing the worthy sentiments in the statement of intent. 

 

TVNZ is perhaps an extreme example of this phenomenon. But no matter what our noble objectives the game can be shaped by the bottom line of the accounts. If you look at the annual reports of Crown entities, especially by those that have to interface with the market, you will be struck by noble sentiments which are not scored, and pages and pages of financial statements which are. Not surprisingly the entity’s performance is shaped more by the quantitative score card than the qualitative statements of intent might imply. 

 

I am not criticising those financial reports. As in the case of the Treasury’s they have an important role in the management of the entity and of the ability of the politician and the public to evaluate the entity’s performance. Moreover, those who devised the conceptual framework for crown accounting were aware of the problem, at least in part. But their enthusiasm to develop high class accounting standards, and their competence, has left each entity lopsided, overdeveloped on its accounting scorecard and underdeveloped on the scorecard about its real purposes. 

 

The situation not unlike the standard criticism of GDP. It is a useful indicator, but it does not tell the whole story. Because it is quantitatively sophisticated compared with other things we care about the story economists tell is often distorted. 

 

Can we get a better balance between the accounting and the non-accounting score cards? There has been some effort to do so, but in many cases the situation remains that the overt purpose is one scorecard, but the covert accounting scorecard dominates the way the game is played. 

 

I would argue that in such circumstances we need an integrated scorecard with the important caveat that given the accounting part will be quantitative, the non-accounting part has to be too. That can be very difficult. 

 

Suppose one really wanted to change the nature of TVNZ. The integrated score card would need to define in quantitative terms the objectives of the station and then connect the objectives to the bottom accounting line. For instance, suppose the objectives said that a station should provide children’s programs with an audience coverage defined differently from that for which advertisers pay. Given that we are likely to keep the existing accounting conventions – for the reasons I have already outlined – then there would need to be some payment to the profit account as the children’s audience was attained. In effect the public would be buying the audience rather than the advertiser. 

 

I have chosen here what seems to be a straight forward integration, and yet it would be a very complicated exercise. Dealing with the more complicated objectives may be nigh on impossible. And yet if we dont do that we cannot get an integration and the accounting score card will dominate the game. 

 

The Public Sector Story 

 

The same struggle applies to the funding of health care. We have moved from a pure bottom line objective in the early 1990s, to the current situation which seems to me to be a muddle. (In another venue I could talk about the resulting managerial-professional tensions.) 

 

Another area which is thoroughly muddled is tertiary education where we have rightly shifted from the disastrous bums-on-seats – never mind the quality, pay by the number of students – approach. But the objectives of the new system are not well integrated with funding incentives – particularly the student contribution. Experience may prove that it is not integrated at all. 

 

The difficulty arises because once we move to more complex objectives the natural advantages of market mechanism are lost. It is easier to pretend a university or hospital or a television station can attain its social objectives by pursuing profits in a market environment. We nobly load the statement of intent with worthy objectives. But the bottom line shapes the entity’s game. 

 

And so we come back to the dreaded reality of GDP. We want a different sort of society than that which simply maximises GDP – although we do want a high material standard of living – but to do that we have to provide resources to pursue these other objectives. Because we are reluctant to do so – it involves taxation – we end up with muddle we are currently in. 

 

Increased efficiency is not the solution. Of course every public entity should seek to use its resources as efficiently as possible. Recall the claim in the early 1990s that switching our hospitals to a private sector management regime would give efficiency gains of 20 percent and more. They never appeared. There is no evidence that they are less successful at doing so that privately owned businesses. 

 

Yes there is inefficiency in the public sector, but the fat is not that of rump steak, thick and easily cut out. Rather it is stippled through prime porterhouse, with the danger that if you try to remove it, you will damage the meat. 

 

As a past Secretary of the Treasury, Graham Scott remarked, outsiders talk ‘as though it will be easy to cut enough fat from the state to pay for tax cuts – it won’t be. Believe me,’ Scott says, ‘I’ve been there and I have done that. The combination of the State Enterprises Act, the Public Finance Act and the State Sector Act, which I helped to design and implement, brought remarkable improvements in the effectiveness of public organisations and lower costs. … We can get better value for money but it has to be done with a scalpel not an axe.’ 

 

(I am even more pessimistic that Scott. The gains from the scalpel are small and take time. Big quick gains can only come from cutting programs and entitlements, the living red meat.) 

 

So the accounting reforms seem to have succeeded insofar as they have eliminated most of the inefficiency in the public sector. But sometimes they have done so at a cost of distorting the practical of the purpose of the entity, especially towards the maximisation of material output, of GDP. Yet we need to avoid the view that GDP is the ultimate arbiter of the economic game we want to play. Its is a useful indicator of economic performance, but it is not the only one, and certainly not the highest one. You are probably aware of the claim that if economics is the father of the System of National Accounts, then accounting is the mother – but they have never married. 

 

The implication for public sector accountants is they need to be careful that their framework does not unconsciously adopt GDP as an ultimate goal when that is inappropriate. And yet the success of the implementation of a system of financial reports for Crown entities and their resulting practical usefulness, creates a score card, which as Gilling’s law warns, shapes the way the game is played. 

 

<>A revised scorecard which shapes the game differently is a challenge which we ignore at the cost of nation’s welfare. It is a challenge for all of us, including public sector accountants. We need to improve the existing score card not abandon it.

 

 

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The Current State Of the Public Sector: an Economist’s View

The 11th Annual Public Sector Finance Forum. 10 September, 2007    

Keywords: Macroeconomics & Money; Regulation & Taxation; Statistics;   

It has been my lot to be asked to give two papers to this Public Sector Finance Forum. Today’s paper might be called the ‘macroeconomics’ paper, in which I look at the size of the public sector and its impact on the economy as a whole. I shall not pay much attention to the quality of the public sector expenditure which is the focus of the second paper, with its microeconomic focus.   

While in principle the papers cover separate topics, they are connected by a similar theme. Too frequently public discussion misuses financial data. I am not blaming those who created the data for this misuse, but it is vital that they understand how their technical constructs can be distorted into public ignorance and misleading political rhetoric. In my view, those who construct data have some responsibility to ensure there is an adequate public understanding of it – a position I hold for my professions of econometrics and social statistics.   

Even so, I recognise that there are forces outside our professions which lead to distorted use of the data we construct. Nevertheless we must try to resist them, and at the very least ensure there is an honest account available for the serious and diligent. .   

Today I am going to look at three macroeconomic issues.   

1. How big is the government in the economy?   

2. What are the implications for taxation?   

3. What is the net fiscal impact of the government on the economy?   

My short conclusion is that these are important questions to ask, but difficult to answer. Too often the answers proffered to the public involve the misuse of financial data for purposes of political exaggeration. I’ll explain too, how this exaggeration can lead to policy difficulties.   

How Big is the Government in the Economy?   

A frequent political debate in New Zealand is about the size of government. One side argues that the government spending is too large, that it is weakening economic performance, and that it should be reduced. The other side argues that there are serious social deficits, that they can be addressed by additional government spending, and it should therefore be increased.   

If asked how big is the government sector, my guess is most people would talk about a figure of 30 or 40 or even 50 percent of GDP. They would probably be referring to the estimates prepared by Treasury and reported in the fiscal outlook. For the record two figures are provided 

* Total Crown Expenses are expected to be $67.9b for the year to June 2008, or 41.2% of GDP; 

* Core Crown Expenses are expected to be $52.8b for the year to June 2008, 32.0% of GDP.   

That two figures are provided are an indication that we are in the murky world of definitions which matter. The difference between the two is that the Total Crown Expenses includes spending by Crown Entities and State Owned Enterprises. This means very different types of expenditure get added together. For example, along with ordinary state spending such as by hospitals and schools, total spending includes such things as expenditure by the lotteries commission on winnings and charities, and on the running state owned power companies. Note that neither figure includes Local Government except where it is funded by the Crown. The DHBs are in, but rates funded expenses are out.   

Are we comparing like with like when the expenses are a proportion of GDP? After all the denominator is a measure of production, while the numerator is a measure of outlays, quite conceptually different notions. A better denominator might be GNE, Gross National Expenditure, which currently exceeds GDP because the country is borrowing to fund its investment and even some of its consumption. Perhaps better statements would be 

* Total Crown Expenses are expected to be 38.0% of GNE, for the year to June 2008; 

* Core Crown Expenses are expected to be 29.5% of GDP, for the year to June 2008.   

But even that does not see quite right since some of the expenses of government are actually spending by individual. For instance a pensioner using New Zealand Superannuation to purchase bread appears as a government expense on these measures. If we subtract out subsidies and transfers we get 

* Total Crown Expenses (excluding transfers and subsidies) are expected to be $48.4b for the year to June 2008, or 27.1% of GNE; 

* Core Crown Expenses (excluding transfers and subsidies) are expected to be $35.2b for the year to June 2008, 21.3% of GDP. {Exact figures are not published. These are estimates.]   

It also makes sense to separate out publicly provided services to individuals from collectively provided services. For instance, if you get treated at a public hospital, that appears in Crown Expenses even though you are the only direct beneficiary. That is quite different from military spending, where the benefits are to the community collectively, and not to separate individuals.   

How much is this individual directed spending? We dont know, but if we assume that 80 percent of public spending on health, education is on individuals, we get a figure close to half of all core government spending for this purpose, so again the proportion looks smaller. 

To give some final indication of the complexities of the measure I turn to another data source, the National Accounts, which use different definitions, but which include local government in their totals. They are currently available only up to the March 2007 year.   

In the 2007 March year, General Government Final Consumption Expenditure (that is including all levels of government spending for both collective and individual purposes, but excluding transfers and the activities of state owned enterprises) amounted to 18.6 percent of GNE. To that you might want to add a further 3.0 to 3.5 percent for government capital formation, including by its producer enterprises. In total, then we are talking of the total government use about 22 percent of national spending.   

Another measure available in the National Accounts is the size of the government administration and defence sector, which treats the government as a production sector, and so may be properly compared to GDP. It is only available in 1995/6 prices, but in the most recent year the government production sector contributed only 4.5 percent to GDP. What happened to the rest of it? Some government spending is in other sectors. Education and health services are in Personal and Community Services, which is a much bigger sector. And the government buys inputs from the private sector – from farmers, manufacturers and so on – which appear in its spending but not in its production.   

Had I the time, I could deluge you with further measures – I have not touched on the employment ones for instance. But I hope the message is clear. Those who talk of the government taking over half the economy – or even a third – are misleading themselves and their audiences. The most likely figure is between a fifth and a quarter of the economy.   

Moreover, when we look at the content of that spending, we conclude that the actual government administration is a small proportion of that total – probably about 5 percent of total production, certainly much less than 10 percent. It is true that there is administration associated with the remaining spending, but that administration occurs when the product is delivered by the private sector too. It is said that 25 percent of the American health budget – one of the most private driven health systems in the rich world – is spent on its administration.   

One question you might want to ask is how does the proportion compare with other countries. Say other OECD countries, because they are more like us and the statistical base for comparisons is better.   

The latest OECD data is available for 2004. Ranking by general government spending – roughly comparable to Total Crown Expenses but including local government – as a proportion of GDP, the OECD reports New Zealand as 23rd of its 30 members. We have the same ranking by General Government Consumption Expenditure: 23rd out of 30. (Ranked by Social Security transfers, which is one of the main differences between the two, New Zealand is 22nd out of 30.)   

(The remainder of the paper uses GDP as the denominator as a scaling device.)   

International comparisons are treacherous. New Zealand boosted itself in the rankings by grossing up New Zealand Superannuation and social security benefits to before tax incomes and then treating them as taxable for income purposes. That means that money which never leaves the government accounts appears in its spending measure. Moreover government expenses include the full cost of civil servants pensions accruing as part of the personnel costs, whereas most countries only report that cost when it is paid out to pensioned off staff.   

There may be good reasons for such practices, but the point here is since other countries do not do it, international comparisons are distorted. However, we may have accounting practices which lower our measured spending compared to other countries.   

But in summary, I think it safe to conclude is that the New Zealand government is not a big spender by international standards. Then why do some people go on about the size of government spending, often making exaggerated claims as to its size and significance?   

What are the Taxation Implications?   

One answer is that they consider that New Zealanders pay too much tax. In the end taxation covers government expenses – I’ll talk more about this equation in the last third of this paper. Are New Zealanders highly taxed?    I’ll not go through the sort of calculations I have just done for government spending, but let me remind you definitions matter. For instance we could markedly reduce the apparent level of taxation by defining benefits and the like as negative taxes. A smaller reduction would be to drop GST from government spending, and not to gross up transfers.   

On existing definitions the OECD ranks New Zealand as 20th out of 30 in terms of total government revenue, which includes non-tax revenue sources and local authority rates. Remember too, the effect of grossing up transfers. Thus it is hard to argue that New Zealand is particularly highly taxed in comparison to other rich countries.   

Even so, there has been extraordinary effort to demonstrate that New Zealanders are highly taxed and that the economy would perform better were tax rates lower, often using almost fraudulent statistical procedures. The alacrity with which some advocates seize upon incompetent analysis to justify their views suggests a debate more driven by enthusiasm than competence.   

Despite the vigorous lobby which argues that the levels of taxation are too high and are inhibiting economic growth the evidence is more ambivalent. Certainly there is research which concludes that high taxes affect economic performance, but there is also research which concludes it does not. The pragmatist is likely to conclude that below certain limits the impact of tax levels on the economy, if any, is of uncertain sign (it may be positive, it may be negative) but in any case it is very small. What that maximum level is, is unclear. One cannot but observe high tax European countries which are among the most prosperous in the world. By their standards New Zealand is not a high tax country so it seems reasonable to conclude it is well below the threshold where taxation damages economic performance.   

Moreover, the efficiency of the tax system matters. The average tax rate measure takes no account of the design of the tax regime, treating the clumsy Muldoon personal income tax system as equally effective as the elegant Douglas one.    Nor does the research evaluate whether it matters what the tax revenue is used for. The public may want the collective services supplied or the different pattern of output that the pattern of taxation and spending may generate. They may want more education, more environment, more culture and heritage, more preventative health care. Some public expenditure may boost economic performance, some may add to social coherence. It may be spent efficiently or wastefully. Nor should we forget that some government spending displaces private expenditure: in the case of health services. public funding may be more efficient that compulsory private insurances.   

At this point we are past the grand rhetoric of more or less government spending, and the higher or lower taxation which goes with it. Instead we are looking at individual spending programs and asking whether it is worth more than the tax which has to raised to fund it. While there is some technical elements to any such judgements, in the end they are political ones. A group of politician has to say we want that public expenditure but not that public expenditure and that will involve raising taxation to this level but not beyond it. That is a practical exercise which, in my opinion, our cabinet system does pretty well.   

It ends up with about half the population grumbling they want more spending and the other half arguing they want lower taxation (or, very often, more than half wanting both of these). The government cannot win, particularly when an opposition political party announces it supports lower taxation and greater government spending, sometimes on the same day.   

The rhetoric is really about the political judgement of the benefits of higher or lower taxation and the balance of public and private spending. Each of us entitled to an opinion: economists’ opinions are no more valuable than any other persons, even if some try to hide their political prejudices behind bad technical economics. The economist’s task is to insist there is a tradeoff – there is no free lunch – while the braver of us may press those who want to cut taxation by asking them to identify which public spending they want to cut, and equally to press those who want to increase public spending by asking what taxes they want to increase.   

There may seem to be an easy option of claiming that tax cuts come from efficiency gains. In tomorrow’s paper I shall argue that obtaining such gains in government is harder than the rhetoric of opposition. The other easy option is to claim that one can have tax reductions and government spending by government borrowing. It is this topic which makes up the last third of the paper.   

The Government Deficit, and the Impact of the Government on the Economy   

Let me begin by making the simple point that a government deficit is a tax on future generations – it’s a timing effect. The ability to borrow to increase expenditure over revenue does not break the connection between tax revenue and government spending. The connection is now over a longer period since debt has to be serviced and repaid so there is less available for spending in the long run.   

It is lesson we should have learned from the 1980s, when the government borrowed heavily to provide high public spending while revenue was weak as top income tax rates were lowered and the economy stagnated. In the 1990s, tax rates had to be held high while we paid for the profligacy. Often the balance was at the expenses of social spending incurring a social deficit. Much of today’s government spending is dealing with that social deficit and the infrastructural backlog from the 1970s and 1980s when governments balanced its books by cutting back on necessary capital investment.   

Perhaps I am passionate about such matters, beyond the technical analysis I usually offer. That is because I judge it immoral to solve our immediate problems by loading debt onto our children and grandchildren.    I

t is not a question of left-right politics in the way that spending-taxation often is. You will recall that many in the caucus of the first Labour Government thought there was no government budget constraint and that additional spending could be financed by Reserve Bank credit. Today there remain people on the left who hold similar views. On the right both the Ronald Reagan and George Bush junior governments generated enormous government deficits, but George Bush senior, as well as Bill Clinton, took measures to restrain and eliminate the deficits.   

On the other hand, New Zealand has been marvellously lucky that it has not had the fiscal irresponsibility of Bush junior and Reagan over the three-quarters of century since it had a Reserve Bank. There have been some close runs. I have already mentioned the social credit wing in the Labour caucus in the 1930s, while the fiscal rhetoric of Norman Kirk was not very disciplined although he offset that with the doughty Bill Rowling as his Minister of Finance.   

The sheer quality of our Ministers of Finance has been one of the highlights of New Zealand’s political record. Fortunately they have been able to resist the spending predations of other cabinet ministers and parliament, in part because they have been backed by their prime ministers.   

The major exception was Rob Muldoon who knew the importance of fiscal discipline, but got away with offsetting large deficits by inflation reducing the value of government debt (reminding us that inflation is a form of taxation).    Muldoon had already been fiscally compromised, when he promised to make National Superannuation, as it was then, markedly more generous. He said he could do it at a cost of .2 percent of GDP. In fact the fiscal cost was closer to 2.5 percent of GDP. Basically Muldoon confused a couple of incomparable numbers, thinking that the immediate impact of his scheme could be compared by the full impact of the Labour scheme fifty years later. The resulting surge in public spending without an offsetting nominal tax hike had the economy struggling through the late 1970s and beyond. It was paid by fiscal drag, as taxes rose faster than inflation, and yet the fiscal drag fuelled inflation as income groups fought to maintain their income relativities. That is why inflation was high and endemic under Muldoon.   

An almost as disastrous election promise was made in 2005, when the National opposition promised substantial income tax cuts together with increases in some government spending. The boost to national expenditure would have been over 2 percent of GDP, comparable to the Muldoon promise.   

Suppose National had been elected to office in 2005 and implemented its promise. It had no room to make substantial spending cuts, although no doubt some programs would have suffered. I note too that it may have hoped to shift some of the investment spending off-balance sheet by pubic-private-initiatives. But whatever the merits they may have in improved efficiency, they do nothing to reduce the fiscal impact of the investment.   

The promised fiscal inject would have had a dramatic impact. Assuming that the Reserve Bank would have resisted the inflationary pressures, interest rates would have had to be even higher than they are today, as would the exchange rate. Many people’s interest bill would have risen by more than their tax cut. Imports would have boomed. Exporters would have been struggling even more. Once the current international financial turmoil commenced our financial system would have been in far greater trouble than we are today.   

Over the last 15 years our Ministers of Finance – Ruth Richardson, Bill Birch, Winston Peters, Bill English and Michael Cullen – have been assiduously building a strong government balance sheet in preparation for such an external shock. We cannot avoid the consequences of international financial turbulence but we can prepare for it. No other rich economy may have as robust a public balance sheet although that could not be said for the New Zealand private sector, which is carrying too much debt. Implementation of the Opposition 2005 election promises would have reduced that robustness, and compromised the economy. We were exceptionally lucky the policies were not implemented, given today’s international monetary turmoil.   

The point of raising the topic today is to draw attention to the fact the policy arose from a misrepresentation of an item in the Crown Accounts. At the time this aggregate was called OBERAC – operating balance excluding revaluation and accounting policy changes – but following the revised GAAP standards introduced in July, the item is replaced by OBEGAL – operating balance before gains and losses.   

In election year 2005 Operating Balance out-turned at $11.5 b (or 7.3 percent of GDP). (In that year the OBERAC was $8,486m or 5.4% of GDP.) Being seen as a surplus it was widely thought it indicated that there was considerable opportunity for major tax cuts. The public rhetoric focusses upon this particular amount, although it is clear that the vast majority who quote it do not have the slightest idea what the aggregate means. They are unaware the extent to which most of the OBERAC/OBEGAL surplus is subsequently used for public investment including in State Owned Enterprises and hospitals, roads, and schools, on funding student loans and the New Zealand Superannuation Fund. In other words, the money that OBEGAL represents is not available for tax cuts, because it is already spent. Nevertheless, journalists and commentators persisted in the belief that the OBEGAL surplus justified income tax cuts.   

This was nicely illustrated earlier this year when a week before his budget speech, Minister Cullen, gave his regular speech to the Canterbury Manufacturers Association, setting out his budget analysis. Cullen scrupulously kept to discussing the cash surplus, roughly the amount left after all the additional spending items are deducted from OBEGAL. His message was that the fiscal position was deteriorating and there was little room for increases in spending or income tax cuts. (There is expected to be a cash deficit of about a billion dollars this year, not a surplus.) One journalist accurately reported what Cullen said, but could not resist adding his own interpretation which involved leaping from the cash position to the OBEGAL surplus and demanding income tax cuts.   

Clearly the journalist did not understand what he was writing about – which may be no surprise. I am frequently struck by the sheer stupidity of the public rhetoric. Does anyone seriously think that had there been room for a tax cut in 2005, the incumbent Minister of Finance would not have given it? Cullen is one of the cleverest and most politically astute Ministers of Finance we have had, and generally they are well above the average of their parliamentary colleagues and journalists. Had he the opportunity, would he have forgone income tax cuts in election year? If you think ‘yes’, you must assume he is as stupid as those who think OBEGAL is a valid measure of the government’s ability to cut taxes.   

OBERGAL is but one of a number of indicators of the government’s fiscal position. Highlighting it to justify tax cuts is irresponsible and incompetent – which does not mean that people wont do it.   

Unfortunately there is no single measure which unambiguously indicates how big a tax cut can be justified. Even retrospectively there are a variety of indicators including those in the 2002 Treasury Working paper on the topic, Indicators of Fiscal Impulse for New Zealand by Renee Phillip and John Janssen. A wider set of fiscal indicators is reported in the Budget documents in a section titled Indicators of the Government’s Fiscal Performance (pages 109 to 114 of the 2007 Budget)”   

The section reports at least nine indicators. If you wanted a single measure I would probably use the prospective cash position. It is expected to be negative for the next few years – in a certain sense the government is a net borrower, although the crown debt to GDP ratio is not expected to rise. My sense is that the fiscal position is at the top of the acceptably prudent range although I might go looser if the world economy turns to custard. That is a matter for a thoughtful discussion. The one thing you can be sure is that the OBEGAL measure will hardly appear in it.    So we have here an example of how a technical measure designed for a particular purpose has transmuted into a popular measure with a quite different meaning, and how that transmutation might have led to policies which could have wrecked the economy. And that is why those who constructed the measure should vigorously participate in the public debate to ensure that users understand what it is they are using – even journalists and politicians.   

Let me finish this section by saying I have been tough on the National Party’s 2005 fiscal policy, for the simple reason that there would have been an economic disaster had it been applied. We are very fortunate it was not implemented. My reading of the National Party’s current fiscal intentions, is that they are prudent, intelligent and common sense – as we would expect from the current Opposition spokesman on finance, Bill English.   

The Gross Debt Target 

I want to finish with one further illustration of how a measure can inadvertently lead to sub-optimal policy. The government currently has a gross debt target, which restricts its ability to borrow in one currency and invest in another since that would increase gross debt even though net debt would be the same. Many would argue that we do not want the government speculating in financial markets. I agree. However the government has a large financial portfolio and it needs to manage it to minimise the cost of Crown borrowing.   

As it happens, without the gross debt target, the government could reduce its borrowing costs by about 60 basis in points, without risk, by borrowing in New Zealand currency, investing the receipts in a foreign currency, and purchasing foreign exchange cover so there is no currency risk. In essence the Crown would be offsetting the carry trade, using its advantage as a sovereign borrower to reduce its costs. One of the consequences of leaving this financial market anomaly is that it has made monetary policy more tense than has been necessary. Essentially the Reserve Bank has had to push harder on the short term interest rate (the Official Cash Rate), in order to attempt to reduce liquidity in the mid term range in which the anomaly occurs.   

Thus the effect of the government’s gross debt target is to raise the cost of Crown borrowing, while putting additional pressure on interests rates and probably the exchange rate. Once more we have an example of how a measure designed for one purpose can lead to inferior policies if it is misused.   

Conclusion   

To conclude then the technicians who create and evaluate such measures have a responsibility to enure the public understands them. That is the theme of this paper.   

<>Go to top

Cultivating Auckland

Why Doesn’t Our Biggest City Have A More Thriving Cultural Life? 

 

Listener: 8 September, 2007. 

 

Keywords: Globalisation & Trade; Literature and Culture; 

 

Asked the difference between Auckland and yoghurt, Wellingtonians are likely to say that the culture is alive in yoghurt. Saying that Wellington has more classical music, more professional theatre and, on a per capita basis, more opera, they would top the list off with Wellywood and the number of creative writers. They see Auckland as a cultural desert – not a dessert. 

 

This creates a problem for economists. Being interested in the structure of cities, we would predict that a city like Auckland should have a thriving cultural life. The theory says that a headquarters and gateway city – a global city – has a large number of professional workers who, because of their affluence and interests, generate the audience (and private funding) for a thriving high culture. 

 

The city need not be a capital – New York is not – but being a capital adds to the number of professional workers and the amount of public funding, which explains much of Wellington’s success. 

 

Perhaps the comparison is selective. Auckland is the centre for art and fashion and some of Wellington’s success is accidental. Wellywood is there because Peter Jackson spent his childhood in the Embassy Theatre. But more screen production (advertising, film and television) takes place in Auckland. Bill Manhire came back from overseas to settle – perhaps by chance – in Wellington and, eventually, set up our most successful -creative writing school. But more publishing occurs in Auckland. 

 

Auckland may do better on mass culture. It is the centre of hip-hop – not surprisingly, given that two-thirds of our Pacific peoples live there. So do two-thirds of our Asians. It is the most ethnically diverse of our cities, as one would expect of a gateway city. This potentially exciting mix is only slowly feeding through, as witnessed by such films as Sione’s Wedding. Auckland tends to be stronger in personal art forms – you wear the clothes, you put paintings on your walls – and mass audience ones, such as screen production. Wellington’s strength is in public performance: what people go to. An Auckland businessman told me that he regretted not seeing more theatre. By the time he had driven home from work and put the kids to bed he did not feel like battling the traffic again. This is only one anecdote, but one can’t help wondering whether Auckland’s overloaded roads and under-provided public transport inhibit its cultural growth. 

 

Those who study the structure of cities know that performance venues are important in networking. They’re not smoke-filled rooms, but places of social interaction. At Wellington performances, busy people often transact minor business – perhaps no more than an exchange of business cards or a “Ring me tomorrow”. This probably happens at, Eden Park, the Northern Club and the Royal Akarana Yacht Club. Perhaps Auckland needs more such venues. That is a second sort of explanation of its cultural weaknesses. 

 

It used to be said that Auckland was 34 villages connected by a sewage pipe – a reference to the 34 bickering local authorities and the Auckland Regional Council that existed until two decades ago. Now there are only six territorial local authorities and the ARC. While they don’t fight to the same extent, they can find it very hard to make strategic decisions, such as the funding of the Auckland Philharmonia. As Beethoven remarked, it is terrifying how much money you need for music. 

 

I doubt that this issue will top the agenda of the proposed Royal Commission on Auckland, but if the commission gets the governance framework of the city correct (and we implement it), we may see cultural benefits, including those arising from a better transport network and better co-ordination of public funding. Once local public funding begins, central government funding will follow – with a lag. 

 

The Wellington joke may be too complacent. Auckland hovers between desert and dessert. With growing affluence and leisure, New Zealand will evolve more “high” and “mass” culture in ways we can but guess. But Auckland’s should evolve faster. If it does not, then the city will not be developing properly. 

 

<>Culture – high and mass – does not make global cities, but it is integral to them. The cultural deficiencies in Auckland reflect that it is not a global city – not yet.

Policy Convergence: Health Care

Chapter 16 of “Globalisation and the Wealth of Nations”

Keywords: Health;

While there is much policy convergence, both to best practice and where international trade is involved, this chapter argues that it is not necessary in many areas, such as health care. But even here, cross-boundary movements of goods and people compromise a country’s freedom to choose its own system.

We saw in the previous chapter that while globalisation is putting pressure on the organisation of social market economies, the likelihood is that they will adapt rather than end. So globalisation is driving some policy convergence (policy-makers in different jurisdictions are forced to adopt similar practices). If this convergence became widespread across too many policy areas, little would remain for the nation-state to do (except perhaps – perish the thought – participate in external aggression). In which case, despite representing a cultural entity, the nation-state might fade in significance.

But does globalisation necessarily cause policy convergence? While in relation to business policy it may, in other areas convergence seems less inevitable.

The Canadian and United States Health Systems

Canada and the United States have very different health-care systems, even though more goods and services cross the US–Canada border than any other. Of course the two systems influence one another, but their organisation remains very different. They are likely to remain so, despite some Americans thinking that Canadians have the better system (and some Canadians using the US system when theirs denies them immediate treatment). If there is policy convergence here, it is very slow.

Often policy convergence stems from a drive towards best practice. We expect the treatment of most medical conditions to be much the same throughout the world, subject to the availability of resources. That has little to do with globalisation.

But often there is not only currently no agreed best practice, there is no likelihood of this developing soon. While sometimes such divergence reflects cultural and other specific factors, often we just do not know what is best. For example, we do not know how best to organise a health-care system. Pragmatists discuss policies for improving the current situation, and they look elsewhere to learn from the experiences of others. But there is no agreement as to the optimal system, nor is there likely to be in the near future.

Without an internationally agreed best practice, a country can develop its health system to meet its own cultural and philosophical needs. It is limited by its ability to attract medical personnel (so salaries must usually be internationally competitive), and medicines and equipment must often be imported. But inside the country there can be considerable room for choice. Where health issues cross borders, choice is much more limited. The obvious example is control of worldwide epidemics, but a more instructive illustration is provided by control of the misuse of alcohol – a product (rather than a person) that may be shipped across a border.

Alcohol Control in the European Union

Controlling alcohol misuse (and tobacco use) is one of the most effective contributions that can be made to a nation’s health, for the economic and social costs of alcohol abuse are large. [1] In principle, alcohol control policies are the responsibility of individual EU countries, which is understandable given that drinking is partly culturally determined. Moreover, the EU principle of ‘subsidiarity’ holds that governance should occur at the lowest possible level consistent with efficiency.

The table below tells the broad story of alcohol consumption and control in the European Union (before its recent extension). [2]

Preferred Drink: Drinkers in most European countries prefer beer. In a handful of ‘Mediterranean’ countries – mostly with low excise duties – they prefer wine. In many countries more than 20 per cent of the absolute alcohol consumed comes from spirits.

Consumption (in litres of absolute alcohol per adult – over fifteen – in 2001): Consumption ranges from 6.9 litres per adult per year in Sweden to 14.5 litres in Ireland, averaging 10.8 litres a year across the EU. A male drinking three standard drinks a day – the level sometimes recommended as the prudent maximum, although some dry days are also advised – would consume 10.6 litres of absolute alcohol in a year; the recommended female level of two drinks a day amounts to 7.1 litres per year.

Chronic Liver Diseases and Cirrhosis (all ages, per 100,000 people): Alcohol causes harm. The rate of chronic liver disease and cirrhosis is but one indicator, for this does not capture harm from drunk driving, alcoholism or alcohol-induced violence. This measure ranges from 4.5 people per 100,000 for the Netherlands to 21.8 for Denmark, around an EU average of 12.7.

Control Intensity (out of 20): Control intensity is a summary indicator of the effects of all alcohol control policies constructed by Esa Österberg and Thomas Karlsson. Its six sub-components cover control of production and wholesaling, control of distribution, personal control, control of marketing, social and environmental control, and public policy – taxation is treated separately. The control index is an attempt to capture the intensity of public policy measures to limit alcohol consumption or the resulting harm. In 2000 values ranged from a relaxed 7 for Austria and Greece to an intense 16.5 for Sweden, averaging 11.0 for the EU.

COUNTRY

Preferred

Drink

Consumption

Liver

Disease

Control Index

1950        2000

Excise

Duties

Austria

Beer

12.6

18.3

4.0

7.0

4.0

Belgium

Beer

10.1

11.8

6.0

11.5

5.9

Denmark

Beer

11.9

21.8

4.0

8.5

12.1

Finland

Beer+

10.4

12.4

17.0

14.5

33.3

France

Wine+

13.5

13.4

1.0

12.5

3.6

Germany

Beer+

12.5

17.0

4.0

8.0

4.3

Greece

Wine*+

9.3

5.0

2.0

7.0

3.7

Ireland

Beer+

14.5

5.8

8.0

12.0

22.8

Italy

Beer+

9.1

13.6

7.0

13.0

3.6

Luxembourg

Wine

17.5

12.8

n.a.

n.a.

1.0

Netherlands

Beer+

9.7

4.5

6.0

13.0

6.6

Portugal

Wine

12.5

14.1

1.0

8.0

1.4

Spain

Wine*+

12.3

10.5

0.0

10.0

2.2

Sweden

Beer*+

6.9

5.4

17.5

16.5

30.9

United Kingdom

Beer

10.4

10.4

8.0

13.0

21.4

EU

Beer*+

10.8

12.7

4.7

11.0

7.8

* Preferred drink accounts for 40 to 50 per cent of absolute alcohol consumption (no *: over 50 per cent)

+ More than 20 per cent of absolute alcohol consumption comes from spirits.

Source: E. Österberg & T. Karlsson, Alcohol Policies in EU Member States and Norway: A Collection of Country Reports, 2002.

Levels of the control index in 1950 were much lower, averaging just 4.7, which presumably reflects less willingness to tackle alcohol-induced harm half a century ago. The spread was also greater, with  Sweden and Finland having even more controlling policies  than they did in 2000. Thus there has been a policy convergence, although this is probably better explained by changing attitudes and shifts towards best practice than by globalisation, except in relation to the spreading of information and attitudes.

Taxation of Alcohol (Euros(€) per litre of absolute alcohol): Taxation, which raises the price of alcohol, is often seen as the most effective way to reduce consumption, and thereby harm. It does so clumsily, because it also reduces drinking that is not harmful and may even be benign. However, the majority of health professionals support high excise duties on alcohol.

Yet that may not be the view in all European countries, for there are wide variations in excise duties and other taxes, which range from close to zero in (typically) wine-drinking countries to a punitive €33.3 per litre in Finland. (Northern European countries tend to levy the highest taxation rates.)

Any correlations in the table are crude, and hardly worth pursuing given the limited number of observations. But there is a larger message. The individual countries have very different drinking practices, and their alcohol control policies differ too.

There is a tension between the principle of alcohol control and the principle of freedom of movement of goods and services within an economic union. What is to be done about travellers who cross national borders with goods taxed under the departing jurisdiction at a lower rate than they are at their destination?

The EU has abolished duty-free allowances for travellers between its member countries, while allowing them to carry sufficient purchases for ‘personal use’. In the case of alcohol the effective personal allowance is 110 litres of beer, plus 10 litres of spirits, plus 90 litres of wine, plus 20 litres of fortified wine. That amounts to almost 23 litres of absolute alcohol, or more than two years’ average consumption for a European Union citizen (and more than two years’ consumption at the maximum recommended male rate).

So under the EU rules, travellers can purchase large quantities of alcohol in a low-tax country, and consume it in a high-tax country. The greatest benefit would be gained by a person travelling from Spain or Italy, where the allowance would carry a tax burden of €46 and €53 respectively, to Sweden or Finland, where the tax would be €703 and €688 respectively. The differentials are smaller for countries that border one another, but four Swedes returning from Germany in a light van laden with their ‘personal’ allowances would save more than €2400 in taxes compared with buying at home. (Finnish alcohol control policy is having a similar problem with its neighbouring new EU member, Estonia. Alcohol is so cheap there that even Britons fly to Tallinn for the weekend to get wasted.)

Thus the opportunities offered by travel to avoid excise duties on alcohol (and tobacco) are considerable – enough, it would seem to pay for some trips. The alcohol must be used for personal consumption and not on-sold or exchanged. For public health purposes it might be better if this rule was ignored.

Individual jurisdictions may continue to pursue independent policies in respect of most of the elements covered by the control index. While varying minimum drinking ages may affect the drinking opportunities of young travellers, that will not markedly undermine the alcohol control policies of the home country. However, advertising limitations are being undermined by media which cross international boundaries – television, radio and print media. It may also be difficult to sustain public monopoly provision of alcoholic drinks because of World Trade Organization and European Union rules.

There may well be a convergence of these controls over time, as best practice becomes clearer, but that will be the voluntary decision of the countries involved, and hardly attributable to globalisation, other than in the sense of the sharing of information. Even so, the pressures from the personal shipment of alcohol within the EU may force some convergence of alcohol tax regimes. It would seem, then, that the globalisation inherent in the European Union provides a pressure on high excise duty countries to scale down their tax rates. If these duties existed just to generate revenue, that would be a matter of only fiscal concern. But insofar as they exist to reduce harmful drinking, some European countries may be losing one of their most effective public health policy instruments in relation to alcohol.

The WHO Framework Convention on Tobacco Control

The approach to tobacco control might suggest how such differences can be handled. In many rich countries the consumption of tobacco is falling, partly because smoking is going out of fashion, but partly because of vigorous control measures introduced after its consumption was recognised as a major public health problem. However, tobacco consumption is rising in poorer countries and consequently in the world as a whole.

In order to reduce the long-term effects on public health the World Health Organization negotiated a Framework Convention on Tobacco Control which came into force in February 2005, when sufficient countries acceded to it.[3] Its objective is ‘to protect present and future generations from the devastating health, social, environmental and economic consequences of tobacco consumption and exposure to tobacco smoke by providing a framework for tobacco control measures to be implemented by the Parties at the national, regional and international levels in order to reduce continually and substantially the prevalence of tobacco use and exposure to tobacco smoke.’

The convention covers the following areas:

Measures relating to the reduction of demand for tobacco, including price and tax measures; protection from exposure to tobacco smoke; regulation of the contents of tobacco products; regulation of tobacco product disclosures; packaging and labelling of tobacco products; education, communication, training and public awareness; tobacco advertising, promotion and sponsorship; and measures to reduce dependence on tobacco.

Measures relating to the reduction of the supply of tobacco, including provisions to prohibit sales to and by minors; support economically viable alternative activities; and deal with illicit trade in tobacco products.

The WHO solution leaves considerable freedom to individual countries; there are no sanctions for non-compliance. Membership is voluntary, and at the time of writing in 2006 many countries – most notably the United States and fourteen members of the European Union – had not acceded to it. Moreover, except for references to smuggling and a commitment to a comprehensive ban on cross-border advertising, promotion and sponsorship (which is likely to be ineffective as long as major media-owning countries have not acceded to the convention), there is little on international trade. Travellers may continue to carry duty-free cigarettes across borders. This is a global convention setting out best practice, but ignoring the implications of globalisation.

Controlling Borders

The European Union has a protocol on alcohol control, but this is honoured more in the breach, since it involves low-duty countries raising their rates.

Given that the European Union is a sort of mini-globalised world, the case study illustrates the possibilities for tension between the principle of free trade in goods and services on the one hand, and public health on the other. This tension does not just apply to alcohol (and tobacco), including their advertising. Other examples include genetically modified foods, unapproved pharmaceuticals and, of course, (illicit) psychotropic drugs. What is to happen if one country requires an additive such as iodine in salt, but others do not?

Nevertheless, the prospect of more international conventions to regulate public health issues across borders is a counterweight to the drive to zero tax levels, despite public health justifications for maintaining higher prices. This involves challenging uncompromisingly free trade in goods and services: restrictions for biosecurity reasons are a precedent.

But even if people cross borders without (licit or illicit) drugs (and without epidemic-generating diseases), there remains a pressure for policy convergence. Who is entitled to treatment? No rich country has an entirely patient-pays system, even where a large proportion of the population have private health insurance. Who is entitled to publicly funded health care?

This is a particularly difficult question for countries where entitlement has been a matter of citizenship, so that practically everyone (or at least every resident) got ‘free’ care. (Britain and New Zealand have been examples.) Did that mean that tourists and other visitors were not charged either? What about guest workers and their families? In particular, what was to prevent an outsider with a medical condition travelling to a country and using its publicly provided care without payment? It is impractical to give everyone who crosses a border a full medical examination. Completely free-to-(all)-residents schemes may have to become more selective or markedly change their funding principles.

Insofar as insurance schemes, whether public or private, do not cover everyone, the same challenge applies when the ‘non-citizen’ is not covered. Once more the mobility of people threatens to undermine traditional assumptions of who is entitled to ‘free health-care’, whatever the reluctance to switch to a full private user-pays regime.

Because international boundaries are increasingly porous, policy areas such as public health face new challenges which at first seem to have little to do with jurisdictional boundaries. John Donne famously said that ‘no man is an Island, entire of it self’; nor, increasingly, is any public policy.

Endnotes

[1] In the two most authoritative studies, the economic impact of alcohol abuse is calculated to lower effective GDP by around 1%. See B. Easton, ‘Alcohol Consumption: The Social and Economic Impacts’, in The Encyclopaedia of Public Health.

[2] Luxembourg is not discussed in the text. Its data tends to be distorted by the number of workers who live outside its borders.

[3] See http://www.who.int/tobacco/framework/download/en/index.html.

Of Ninjas and Private Equity

Will There Be A Worldwide Financial Crash?   

Listener: 25 August, 2007   

Keywords: Macroeconomics & Money;   

We cannot tell whether the current turbulence in international financial markets will continue, end or get worse. What is certain, though, is that there are serious financial imbalances in the world economy that have to be corrected in the long run.   

Sometimes such adjustments occur without excessive pain, as when US presidents George Bush Sr and Bill Clinton ended the US budget deficit inherited from Ronald Reagan. Sometimes the correction leads to bankruptcy and unemployment.   

The current imbalances arise from Bush Jr’s tax cuts while he increased government spending, coupled with the Japanese central bank’s low interest rate of half a percent a year. The resulting liquidity injection into the world economy has had investors looking for opportunities to invest cheap funds. As prudent opportunities became exhausted they sought higher-risk ones such as “sub-prime” housing loans in the US.   

This is not a term used in New Zealand, but US banks have been providing mortgages to “Ninja” borrowers – “No Income, No Jobs or Assets” – on the grounds that, while there will be failures, enough high-interest loans will succeed to cover the failures. It is not obvious that this strategy works in the long run.   

We are not sure who will suffer initially when the loans come unstuck. Simple loans have been carved up into components reflecting various risks that are on-sold to different investors with different risk requirements. So it is unclear who are the ultimate risk-takers. As the loans fail, or are seen to be in danger of failing, investors call on other investments to cover their losses. They sell shares to get the cash, depressing share prices, and liquidate loans in overseas financial markets (such as New Zealand), disturbing their exchange rates and pushing up local interest rates.   

This can trigger a chain reaction, since others have difficulty selling their assets or servicing their loans. Some of those caught out may be innocent of excessive speculation – say, first homeowners – but even so, they suffer. It gets worse if people jammed for money stop paying bills, since their trade suppliers now have a shortage of cash, and cut back their orders, which reduces sales by suppliers.   

The downward spiral worsens as workers are laid off. Economic activity may seize up altogether if the money required to keep the economy running is compromised by an implosion of the financial system.   

This worst-case scenario is well understood by monetary authorities, About a fortnight ago, a French Bank, BNP Paribar, reported a “complete evaporation of liquidity in certain market segments”. The central banks responded by injecting billions of dollars and euros into the world monetary system. Now, initially anyway, investors do not have the same need to liquidate (turn into cash) their financial assets. But they may be frightened of failure and nonetheless precipitate further turmoil.   

The injected cash does not address the underlying financial imbalances. It merely puts off the day of reckoning. Perhaps the central banks hope that the financial markets will use the time to unwind some of their more perilous positions in an orderly manner. Although markets may be somewhat more sober than they were a couple of months ago, the unwinding may take a long time. Meanwhile, the world economy could stagnate.   

I have focused on the US sub-prime market, but there is a parallel threat from private-equity takeovers that have been highly “leveraged” – ie, most of the purchase is funded from loans. The financial viability of the taken-over firm becomes compromised if its earnings decline or interest rates rise and the purchase loans cannot be fully serviced.    These overseas upheavals are already having an impact on New Zealand. As far as can be judged, our financial system is sound, and can bear significant pressure from the world economy. However, some local borrowers are pressured, and may be even more so if the economy slows down and unemployment rises.   

The usual advice to investors remains: include a margin in your financial planning for other people’s stupidity. This time the “others” may include people overseas, ranging from the poorest Ninjas to the richest private-equity investors. 

Greater Good

Limit Your Carbon Emissions for Honourable Reasons, But Don’t Expect the World to Follow.
 

Listener: 11 August, 2007.
 

Keywords: Environment & Resources;  Globalisation & Trade;
 

It will not be easy for the world to solve the threat of global warming. It requires collective action, but there is no supranational political entity to enable it.
 

The Kyoto Agreement is between sovereign states who may or may not fulfil their promises to meet the given targets. It is no good saying that if they fail in the first commitment period (to 2012), their target reductions become even more onerous in the following one. They can choose to fail to meet those, too. Governments were allowed to join the European Monetary Union on the condition that they kept their budget deficits below a certain level – but when the bigger economies didn’t, the penalties for failure were simply not enforced.
 

You may feel passionately about the dangers of global warming, and personally reduce your emissions. What you do will have little effect. The same is equally true for New Zealand. Why then bother?
 

There is, of course, a moral reason: the fifth learning in Robert Fulghum’s All I Really Need to Know I Learned in Kindergarten is “clean up your own mess”. However, morality does not have much force in international relations. New Zealand abandoned its subsidies to farmers but no other country followed. It went anti-nuclear – alone. So, yes, limit your carbon emissions for honourable reasons, but don’t expect the world to follow.
 

The international game is even worse. The optimum strategy is to convince everyone else to take measures, but for your country to free-ride. So everyone has an incentive to cheat, and the world will warm.
 

Here is a more optimistic scenario. In the European Union there is a strong lobby of what might be called “moral greens” (not just those who vote for green parties) who, fearful of the consequences of global warning, want action. At least three national premiers – Gordon Brown (UK), Angela Merkel (Germany) and now Nicolas Sarkozy (France) – have similar commitments for personal or political reasons.

Crucially, unlike New Zealand, if the EU – one of the world’s biggest polluters – took action, there would be a perceptible reduction in global warming.
 

But European businesses are nervous about raising their costs by limiting their emissions while becoming uncompetitive against foreign businesses that don’t bother. Sarkozy, pressured by them and his moral greens, has announced that he will tax and restrict imports from countries that do not reduce their emissions enough. It’s a moot point whether World Trade Organisation rules allow such actions: if they don’t, do not be surprised if the rules get changed. The European Union could then follow France.
 

So if New Zealand does not meet its Kyoto targets we could find our exports to the EU further levied and excluded. Thus we, and many other parts of the world keen to export to the EU, have a real incentive to reduce carbon emissions, adding to the EU reductions. (This is in addition to the moral greens affecting purchasing patterns. “Food miles” is hysteria but EU retailers may evolve a more coherent approach, where New Zealand’s reputation and achievements will affect whether they sell our products or not.)
 

This process works because the EU is big enough and cohesive enough and because it can, to some effect, punish cheats. The US, under its next President, would probably join with it, which would give even more leverage against such possible recalcitrants as China, India, Korea and Mexico.
 

There are a couple of strategic implications for New Zealand. First, the most important thing our moral greens might do is strengthen their European compatriots. Personal and national actions set an example, but they may also more directly support the political activities of the moral greens of Europe.
 

Second, our most problematic greenhouse-gas emitters are pastoral farmers who have the most to lose if the EU penalises recalcitrants. (It is difficult to stop livestock emitting the most damaging methane and nitrous-oxide greenhouse gases.)
 

Undoubtedly we should go for the easy reductions first – cutting emissions from transport and electricity generation. But the survival of our pastoral industry and New Zealand’s standard of living may depend on how we reduce all our greenhouse emissions.

Mortgage Stress: How Much Has It Risen?

This note was commissioned by the Sunday Star Times (5 August, 2007)
 

Keywords: Distributional Economics; Macroeconomics & Money; Social Policy;
 In the year to June 2004, 3.7% of all households suffered ‘mortgage stress’ defined as having at least 40% of their disposable income being used to service their mortgage. This definition of mortgage stress is similar to the Australian level after we allow that they use ‘gross income’ (before tax) and we use net income (after tax).
 

If we use a less demanding standard of 30% of disposable income, the proportion is 7.4%. That is the ratio which was once considered near the upper limit when housing was being bought. Let’s call households between the 30% and 40% as being in mortgage servicing difficulties. In such difficulties (but not in mortgage stress) were also 3.7% of all households.
 

These figures come from the Household Economic Survey for 2003/4. The results of the next one, for the just finished June 2007 year, are not yet published. However the Reserve Bank reports that ‘House Borrowing Servicing Costs’ have risen from 7.6 percent of all household disposable income in the 2003/4 year to 11.6 percent in the June 2007 quarter.
 

We can use the RBNZ statistic  to update the Household Economic Survey estimates. It appears that the proportion in mortgage stress (that is outlaying over 40% of their disposable income on mortgage servicing) has risen from 3.7% of all households to 11.2%  in the three year period. Adding those in difficulties (outlaying between 30% and 40%) increases the figureof 7.4% (as already reported) in 2003/4 to 17.0% in the just ended quarter.
 

So today there are around 175,000 households, involving 315,000 adults and 180,000 children, experiencing mortgage stress. There are another 90,000 households with 165,000 adults and 90,000 children which are having difficulties but have not reached the mortgage stress threshold.
 

These are large numbers of New Zealanders, but we need to be cautious interpreting them. Some of those in the stress zones will be couples or single adults, who have deliberately taken on a big mortgage as a part of their life plan. Some have invested in rental accommodation. Moreover, almost three quarters of the stressed are parents and their children: some will be under less duress from April of this year when the Working for Families package adds to their income. Some will also be in receipt of housing assistance.
 

On the other hand, these figures do not include consumer debt which adds to the interest payment outlays, nor do they included those pressured from high rents.
 

You might also argue that the thresholds of 30% and 40% are arbitrary. Certainly they involve  judgements, but any reasonable alternatives would lead to the same conclusion that there has been a sharp rise of households under financial pressure because of their burgeoning mortgage bills.
 

The rising proportions of those with mortgage difficulties reflect that as mortgages roll over households have been paying higher interest, while new home purchasers are having to take out larger mortgages as house prices have risen. Interest rates on new mortgages are up from an average of 7.4% p.a. in the 2003/4 year to 9.6% p.a. in the March 2007 quarter. Meanwhile house prices have risen over 40% in the period.
 

Why have house prices gone up? New Zealand is currently in a speculative housing boom, funded by overseas savings pouring into the economy. This pushes up the price of houses, especially as established households buy additional houses for investment purposes. Meanwhile the Reserve Bank is trying to restrain the house price boom – and the economy as a whole – by raising interest rates, which is the only policy instrument it has.
 

But relying on interest rates to restrain the economy affects only borrowers, not everyone. Monetary restraint does not share the burden of adjustment across the whole economy, but only on narrow sections – especially recent home buyer (and the export sector as the exchange rate gets pushed up). Because the burden is not shared, those who bear it suffer great pressures as the statistics imply.
 

But it not just monetary policy. Those who have participated in the housing market for the speculative returns of capital gains have also added to the burden of those who merely want to live in decent housing.
 

HOUSEHOLDS IN MORTGAGE STRESS
(At least 40% of disposable income used for Mortgage Debt Servicing)

<>  <>Year to June 2004
<>Quarter to June 2007
<>Total Households (No)
<>1,495,000
<>1,551,00
<>Percent in Mortgage Stress
<>3.7%
<>11.2%
<>Households in Mortgage Stress (No)
<>56,000
<>175,000
<>Adults in Mortgage Stress (No)
<>95,000
<>315,000
<>Children in Mortgage Stress (No)
<>48,000
<>180,000
<>People in Mortgage Stress (No)
<>144,000
<>495,000
<>Percent of Household with Mortgages
in Mortgage Stress
<>11.6%
<>N.A.

HOUSEHOLDS IN MORTGAGE SERVICING DIFFICULTIES (but not mortgage stress)
(Between 30% and 40% of disposable income used for Mortgage Debt Servicing)

<>  <>Year to June 2004
<>Quarter to June 2007
<>Total Households (No)
<>1,495,000
<>1,551,00
<>Percent in Mortgage Servicing Difficulties
<>3.7%
<>6.8%
<>Households in Mortgage Servicing Difficulties (No)
<>56,000
<>90,000
<>Adults in Mortgage Servicing Difficulties (No)
<>104,000
<>165,000
<>Children in Mortgage Servicing Difficulties (No)
<>58,000
<>90,000
<>People in Mortgage Servicing Difficulties (No)
<>162,000
<>255,000
<>Percent of Household with Mortgages in Mortgage Servicing Difficulties
<>11.6%
<>N.A.

Note that there are rounding effects.
 

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