Sugarcoating

When the international price of cotton and sugar is raised, why should we be pleased?
Listener: 31 July 2004.

Keywords: Globalisation & Trade;

As unlikely as it may seem, cotton and sugar are playing a vital role in New Zealand’s economic prospects. A World Trade Organisation panel has just found in favour of a Brazilian – and others – complaint that the US is subsidising or “dumping” its exports of cotton. The panel concluded that the US action depresses international cotton prices, so other cotton exporters are getting lower than free – or fair – market prices. It rules that the dumping must stop.

The US is appealing the decision, but most observers expect it to lose. It has a record of going to the last court of appeal, and then caving in when it loses there, as it did over its illegal hike in the tariff on our lamb. This enables its trade negotiators to say to their farmers that they did their best, although I suspect the diplomats will be happy to lose in the wider interests of US trade strategy.

The Brazilians have a similar claim against European Union sugar exports. Although the WTO decision has yet to be made, everyone expects the same conclusion: that the EU is dumping its sugar surplus on world markets, depressing prices, and it should desist, too. Ending the dumping will raise international prices of cotton and sugar. Although Third World producers will be better off, New Zealand consumers will have to pay more. Why should we be pleased?

The point is the principle: rich countries in particular are not allowed to subsidise their own producers, and then dump surpluses from overproduction into world markets, depressing the returns of unsubsidised producers. That principle applies to all farm exports, including dairy products. So New Zealand dairy farmers will be better off with the ending of dumping and their gains, spread through the rest of the economy, will be considerably greater than any consumer losses. A rule of thumb is that every dollar we get from higher export prices relative to import prices adds three dollars to national spending in the long run.

The EU as good as conceded that it is going to lose the sugar case, when its Trade Commissioner, Pascal Lamy, announced that the EU will support steps in the Doha Round trade negotiations to eliminate subsiding of exports, providing others do the same. The US, the other big player in the negotiations, welcomed the proposal. Its trade negotiators already support the elimination of dumping. But never forget that – as in the EU – US farmers are divided, since some, such as cotton producers, benefit from the dumping, while others suffer. In contrast, dumping is an unmitigated disaster for New Zealand farmers, because we do not do any ourselves.

The EU is similarly conflicted. Many of its members are tired of subsidising others’ farmers, and especially nervous given that some of the countries that joined last May have large – and largely inefficient – farm sectors. On the other hand, France, a net beneficiary of the EU’s Common Agricultural Policy, protested against Lamy’s announcement. However, the EU has been reforming its agricultural subsidies to align more closely its producer prices with those in the international markets, so the internal consequences of their ending dumping may not be large.

There was a cheer when Lamy made the announcement, because the Doha Round, which aims to reduce trade interventions, seemed to have got stuck over agriculture protection. Both the Europeans and the Americans want a major decision by early August, because of elections later in the year.

Any agreement will only offer a general framework, and there will be much work to be done on details. So when and if success is announced, don’t expect immediate benefits. Even after the final settlement a year and more later, the new policies will phase in. More-over, the EU, US and Japan are unlikely to remove all the barricades defending their domestic food markets from New Zealand (and other) competition – not this time round, anyway. But eliminating dumping into third markets will boost our dairy industry, while products such as fish and timber will get better access and prices, too. The benefits will flow through to all of us, although consumers of cotton and sugar will have to take a small downside.

The Relevance Of GDP

A Report prepared in February 2003.

Keywords: Growth & Innovation; Statistics;

Contents
Introduction
What is GDP?
Comparing GDP Through Time
Comparing GDP Between Countries: Purchasing Power Parity
How Satisfactory is the Adjustment?
Comparisons Through Time
Scaling PPP adjusted GDP
Ranking by GDP
Does GDP Measure Economic Welfare?
Alternative Measures to GDP

Notes

Introduction

GDP is used extensively in economic analysis and in the public economic discourse. More recently a particular version of GDP – per capita GDP measured in international purchasing power parity prices – has been used for international comparisons, and it has been argued that it is the relevant economic goal. Thus the target of ‘the top half of the OECD’ by some target date is to be evaluated by this measure.

This report is more cautious. It will argue that GDP is a part of a comprehensive system of economic analysis which enables systematic consideration of the economy at sectoral and industry level. Hence it is a valuable measure. However, it is inappropriate to use the indicator as an overall measure of the achievement of a society, or as its ultimate goal. For a number of reasons – which the report details – international measures of GDP suffer even further problems. Even so, comparing New Zealand’s per capita GDP measured in international purchasing power parity prices has so merit.

What is GDP?

Statistics New Zealand defines its Gross Domestic Product as ‘the total market value of goods and services produced in New Zealand, after deducting the costs of goods and services utilised in the process of production, but before deducting allowances for the consumption of fixed capital’.

There are three separate ways of looking at GDP. First, it is the aggregate net production of the economy. (The ‘net’ is to avoid double counting of inputs – including imports.) Second, it is the income that the production generates. Third, it is the disposal of the production, usually called ‘expenditure’. In principle each approach offers a different way of measuring GDP, but because all the production is disposed of, and because all the relevant income is generated from the net production, in principle the three measures yield exactly the same total. In practice there is measurement error, and so the actually measured totals can differ significantly (sometimes in percentage terms by more than the annual growth rate) because of measurement difficulties.

Note that the theoretical equality of the three measures only occurs when they are valued in the current prices. When other prices are used, there are theoretical as well as practical differences between the totals of the three measures.

GDP is the most prominent indicator derived from the System of National Accounts (SNA). As such, it is embedded in a comprehensive data base which attempts to characterise the main movements in the economy by statistical measures of income, production and expenditure at the aggregate, sectoral and industry level. Although this is not always evident in the popular discourse, economic analysis sees the various elements of the SNA interacting with each other – behaviourally as well as mathematically – and the GDP as a summary indicator of the interactions.

For many purposes another element of the SNA such as National Income (NI) would be a better aggregate outcome indicator. National Income is GDP less the consumption of fixed capital (depreciation), and reflects the income of the nationals (i.e of New Zealanders) rather than the income generated in New Zealand some of which goes to non-nationals. (NI also includes income New Zealanders earn overseas, which is included in other countries GDPs.) New Zealand National Income is a better measure of the true spending power of New Zealanders, that is (according to the definition proposed by John Hicks) the maximum amount they can spend and still have the same stock of assets at the end. It is still subject to the most of major criticisms of the inadequacy of GDP as a welfare indicator (below).[1]

GDP’s advantage is that it better reflects the underlying production basis on which the SNA is based, while the adjustments to derive NI are both conceptually problematic and subject to a larger error.

Comparing GDP Through Time

Because GDP is measured in market prices, and those prices change – especially given the tendency of the prices to generally rise (inflation) – a comparison of the ‘nominal’ GDP over time is not very useful. To facilitate a better comparison, the GDP at different points in time is valued in the same set of prices, usually the prices of the first year of the series.[2] This repriced GDP is sometimes called ‘GDP in constant prices’, or ‘real GDP’ (as opposed to nominal GDP), or ‘volume GDP’ (as opposed to value GDP). The ‘constant price’ name is the most technically correct, but a little clumsy. ‘Volume GDP’ is probably a better convenient term than ‘real GDP’, since the latter may imply to some that there is some GDP which is unreal.[3]

The repricing raises four problems, each of which also apply, to some (greater)degree, when international GDP comparisons are made.

First, not every item can be individually priced. One procedure is to obtain representative prices for some of the goods and services in a production or expenditure group, and to calculate a weighted increase of those prices, using that to deflate the change in the value of the production or expenditure. (It may be noted that international comparisons use far fewer commodities priced than national consumer price indexes.)

Second, new products arise and the quality of products change over time. There are a number of ways which statisticians allow for this, but ultimately one is left with the doubt that data comparisons through time are problematic because in the short run they dont properly allow for technology changes and in the long run they dont properly allow for new products.[4]

Third, some products cannot be priced as an output and have to be priced on an input basis. The public sector services are valued by the sum of their inputs (mainly labour). Where that happens, the procedure does not systematically allow for productivity changes although some countries make add hoc adjustments for believed changes in (labour) productivity. Additional capital goods (investment) are also, in effect, valued as inputs (so that an inefficient construction makes a higher contribution to GDP than a more efficient one which does the same job).

Fourth, while nominal GDP measured on the production side is exactly theoretically equal to nominal GDP measured on the expenditure side, the volume GDP measured from production and expenditure sides need not be theoretically equal. The divergence arises because of the impact of changes in relative prices between exports and imports (the terms of trade). Suppose export prices fall in a year relative to import prices, while the volume of exports remains exactly the same, and that all other prices remain the same. The constant-price production side estimate will not change between the two years. However there will be less volume imports (since the exports purchase less of them), less expenditure, so the constant-price expenditure side estimate will fall. Because New Zealand has experienced substantial terms of trades shifts, the distinction was important when wages were indexed to productivity changes. The expenditure side estimate of GDP was then called ‘effective GDP’, now defined in the SNA as ‘Real Gross Domestic Income’ (RGDI).

Comparing GDP Between Countries: Purchasing Power Parity

In principle the comparison between countries is exactly the same as the comparison over time: that is the same set of prices are applied to the production in each country.

Because the prices in different countries involve different currencies, in effect each product has its own exchange rate. Suppose the currency used for all product valuations was the international standard unit (ISU). Then for every product there would be a local currency price and an ISU price, and each ratio would be an exchange rate for each product. These exchange rates – or as they are known purchasing power parities (PPPs) – vary by product. For instance in 1998, the comparative price level most expensive New Zealand SNA group (Alcoholic Beverage, Tobacco and Narcotics) was 74 percent higher than the least expensive (Education).[5]

Before there was any of the detailed price comparisons (which exist for many, but not all, countries) the only available exchange rate was that between the internationally traded currencies. Converting GDP with the currency exchange rate was obviously wrong because changes in the exchange rates did not reflect underlying changes in prices.[6]

A textbook illustration of the notion of purchasing power parity is the McDonalds hamburger rate, which the London Economist publishes (it being easy for journalists to collect). The standard McDonalds hamburger has exactly the same content wherever it is sold. The Economist argues price for the hamburger reflects the average level of prices in the economy. But economies produce many more products than hamburgers, and the relativities between their prices and the hamburger is not constant, not least because case some of the inputs in a hamburger are subject to protection and subsidies – notably beef. Regrettably the McDonald’s exchange rate is given far more prominence than is justified.[7]

At the simplest level one might apply the prices of one country (as Australia) to another (New Zealand). The resulting measure might suggest the ‘Australian’ GDP was x percent greater than the ‘New Zealand’ GDP. Reversing the exercise, by applying ‘New Zealand’ prices to ‘Australian’ production might suggest that ‘Australian’ GDP was now y percent greater than the ‘New Zealand’ GDP. As a general rule ‘x’ will not equal ‘y’ so that different price purchasing power parity regimes give different relativities. This is no different in principle to what happens in price comparisons over different years (or the difference between the Paasche and Laspeyre price indexes). However the inter-country differences tend to be larger than the inter-time differences. Moreover, year data can be ordered through time. Country comparisons have no such general ordering, and the inclusion of a third country adds to the paradoxes. A different choice of an average set of international prices might lead to different relativities.

How Satisfactory is the Adjustment?

Deriving the international average prices is nor easy. There are technical answers, but they add a degree of error in that different answers may result in slightly different relativity.

There are three recognised weaknesses in the current procedures, which are also evident in the over-time comparisons, but to a lesser degree.
(1) It is difficult to get representative prices across economies. The McDonalds illustration makes it look misleadingly easy, but consider the complications of getting a price for something as basic as bread for a number of different countries given the variation in the style of breads. Housing is particularly difficult.
(2) The reliance on input measures for evaluating the public sector. In effect public sector workers with the same job specifications and qualifications are assumed to have the same productivity in all countries, an assumption which is clearly not true in the private sector.
(3) International comparisons of the price of capital investment products, are difficult.[8]

Recently, a further problem has been identified, although thus far the investigation has been preliminary. Products are priced differently depending on whether they are consumed or exported. Exports are priced at internationally traded prices while consumption is priced at (average) domestic traded prices. In a free-trade world the two would be the same (transport and distribution margins aside). However where there is protection there may be a substantial difference between the (average) export price and the (average) domestic price, and the PPP adjusted GDPs on the production and expenditure side will differ. In particular, the GDP of an economy whose exports face protection will be higher measured by the products it produces (the ‘production side’ estimate) than by the disposal of the products (the ‘expenditure side’ estimate). Conversely, an economy which protects its domestic industry but imports some of the protected product will have a higher expenditure side PPP.

Only the PPP adjusted expenditure side GDP is estimated. The implication is that those countries whose exports suffer strong discrimination will appear (relatively) lower than had the estimate been done on the production side. The exact meanings and implications are yet to be explored. It may be that the so-called PPP-adjusted GDP is more comparable with a PPP-RGDPI, that it is gives a measure of spending power rather than production.

There is a need to quantify the effect. The divergence for most OECD countries is likely to be small but in New Zealand’s case the difference may be in the order of 10 percent because of the high proportion of discriminated-against exports in GDP, and the high levels of discrimination. If so, half the gap between New Zealand’s PPP adjusted GDP and the mean may be explained by protection against New Zealand’s exports.

More generally, estimates of sectoral productivity based on the production side (the only practical way of doing this) will not sum to aggregate productivity based on PPP adjusted GDP derived from the expenditure side.

Comparisons Through Time

In principle the growth of PPP adjusted GDP ought to confirm to the growth of GDP based on the constant price series. As Table 1 suggests, there is a mismatch between the 1990 and 1998 figures.[9] Some 16 of the 23 economies experience an annual difference between the two estimates greater than 0.3%. Errors of this magnitude in a year tend to cause comment. Yet this was the average error for 8 years.

The implications could be some or all of:
(1) The 1990 PPP adjustments were wrong;
(2) The 1998 PPP adjustments were wrong;
(3) The constant price series are wrong;
(4) The expenditure side GDP on which the PPP adjusted series are estimated, has a different growth record to the production GDP figures on which the constant price figures are usually based;
(5) Revisions to methodology are important (as they certainly were between 1985 and 1990).
(6) It may reflect the ambiguity between GDP and RGDI. (When I used the RGDI growth rate for NZ instead of the GDP one the error difference was eliminated. However some of the country errors seem far larger than could be explained by a terms of trade effect.)

PPP adjusted GDPs are estimated at three year intervals, the previous rounds being 1980, 1985, 1990, 1993, 1996, and 1999. The next, due for release next year is for 2002. Other years may be interpolated or extrapolated using volume GDP growth rates. However this results of this section caution could be misleading. Additionally, the GDP (and population) data for individual years takes a little time to settle down because of revisions as new information comes in, so that extrapolation is more hazardous.

Scaling PPP adjusted GDP

Countries with bigger populations tend to have bigger GDPs, so it is usual to compare economies by per capita GDP. (Whether there should be some adjustment for the age distribution – children usually consume less than adults – is rarely considered.)

More recently there has been some attention to comparing the economies by labour force and by hours work. The resulting rankings are shown in Table 2. While the Netherlands is only 107 percent of the OECD average (of 27 economies – hourly data was not available for three OECD countries.) on a per capita basis, it is 145 percent on a per hour basis.[10]

Thus the US is behind Netherlands, Belgium, Norway, Italy and Ireland on a per hour basis.[11] Apparently part of US economic strength arises from Americans working longer hours. (The ‘apparently’ is necessary, because while the hours worked data comes from the OECD, it is not clear how well the individual countries are comparable and verified.)

New Zealanders work slightly more hours per capita than the OECD average, and so their average hourly productivity is slightly lower than the per capita one, measurement problems aside. The figure does not include commuting hours. If New Zealanders commuted an hour a day less than the OECD average, hourly productivity including commuting would be closer to 80 percent of the average.

More generally, adjusting for hours work (together with commuting hours were that possible) illustrates not only how fragile the relativities are, but that GDP by itself is inadequate insofar as it ignores the amount of accompanying leisure.

Ranking by GDP

The public rhetoric focuses upon New Zealand’s ranking and defines a goal in terms of ranking, rather as if it is a race. As in the Infometrics report prepared for NZTE, economists tend to work with the ratio of scaled GDPs, as in the second and fourth columns of Table 2, in contrast to the third and fifth columns. The technical reason is that a cardinal measure (such as a ratio) is far easier to work with than an ordinal measure (such as a ranking). In any case, there is a loss of information from reducing a cardinal to an ordinal measure, for ordinal measure (rankings) can be derived from cardinal measures (the ratio) but not the reverse.

Rankings can be very misleading. New Zealand lost only one place (to Ireland) between 1985 and 1999 on per capita GDP, but the relativity to average OECD fell by about 15 percent. On the other hand in the 1970s when New Zealand was growing as fast as the OECD, a number of countries growing fractionally faster passed it. There were few economies just behind New Zealand in 1985 and a lot in 1975. In racing parlance, in 1985 the economy could slow down to a walk but there was nobody near enough to pass it, whereas in 1975 New Zealand was catching up with the front runners, but others were catching up faster. That this can be misleading is evident from the Treasury growth studies which use rankings, and fail to pay sufficient attention to the poor performance in the late 1980s and early 1990s, because the ranking had not changed much.

Rankings hide bunching. The table shows five countries in the range 101 to 107 percent of the OECD average, all within measurement error of 104 percent. Slight errors may change rankings. In a recent paper The PPP Programme and the Uses of PPPs, the head of the program, Paul Schreyer cautioned that a 2 percent difference was within measurement error. Rankings give no indication of measurement error.

A further complication is that new member economies are being added to the OECD. Most are at the poorer end which means the OECD median and the mean are usually lower following the addition of new members (which also destabilises the data in past studies, and the public rhetoric).

In summary, the rankings are a poor way of characterising the situation New Zealand is in, has been in, and can be in. Relativities are better, but even they change as additional countries are added. Because of measurement errors, the relativities and rankings tend to jump around from data base to revised data base.

Does GDP Measure Economic Welfare?

The short answer to the question of whether GDP (or NI) is a good measure of economic welfare is that it is not. When the measure was systematically derived in the 1930s and 1940s, welfare was not a focus. The concern was with practical issues of how to determine employment and how to ‘pay for the war’. There is a theory which might be used to conclude that NI is a measure of welfare but it assumes the utilitarian theory that human welfare only increases by the increase in the goods and services transacted in the market.

While on occasions commentators – not always well versed in economics or the relevant theory – point out the inadequacies of GDP as a welfare measure, economists have long known of its deficiencies. In particular the measure omits those things which occur outside the market including most human interactions (including, has we have just seen, leisure), the interactions with the environment, and economic activity which occurs outside the market (such as most housework).[12] Not only are these probably more important, but it sometimes happens that GDP rises at the expense of the omissions.[13] GDP, which is typically measured in a short period of a year or a quarter is not an indicator of sustainability.[14] Much market activity is an input rather than an output in its own right. Examples include military spending, spending on crime justice and on health services, and the elimination of pollution. In each case it is possible to envisage a world where the spending was unnecessary and the nation was better off with a lower GDP: no military threat, without crime, without various health problems, and without pollution.

A further weakness is that GDP ignores the distribution of spending power (income). An economy with a highly unequal distribution of income may have the same GDP as one with a more egalitarian distribution. Yet we may want to judge the two to be quite different in welfare terms. Using GDP as a measure of welfare rests on so-called ‘Hume’s law’ that a dollar is a dollar is a dollar, where a dollar has the same value to a rich person as to a poor one.[15]

Awareness of these deficiencies has not led to their resolution. There have been various attempts to extend GDP to a wider measure, but typically they have proved neither compelling or robust. Among the difficulties have been how to provide ‘market’ prices for activities and transactions which do not occur in the market. Some efforts have also frequently lacked an understanding of the SNA framework out of which GDP is derived.

A recent development raises the even more serious possibility that in rich countries there is no indicator of material output which corelates well with human welfare. The utilitarian assumption that more material goods and services are associated with greater welfare and therefore GDP (or augmented GDP) is a measure of welfare, is an assumption, underpinned by little robust evidence utilising other independent assessments of welfare. Data reporting self-assessed happiness
– does not correlate with growth in GDP overtime (in fact the happiness level in countries where there is tracking remains constant despite rising per capita GDP);
– it correlates only weakly with relative income within countries (for instance marital status is a far stronger indicator of happiness than income);
– among the richest countries per capita GDP does not correlate with average happiness (New Zealand is third equal with the US, despite them being very differently ranked by GDP).

This last cross-national result suggests a possible interpretation. There is a correlation between GDP per capita and reported happiness for those countries with per capita GDPs lower than about 70 percent of New Zealand’s (although other variables are relevant too). This suggests that additional material product may contribute significantly to the welfare of people in poorer economies but that it is an asymptotic and other factors may be important for richer ones.

Alternative Measures to GDP

While researchers may want to explore alternatives to GDP as a measure of welfare, they need to pursue the same rigorous tests as those indicated for GDP. A measure needs to be a part of a comprehensive theoretical framework, which is practically useful, and has demonstrated the usefulness (i.e. been validated). One-off estimates are of little use: the need is for long run time series and cross national comparisons. No other measures meet these criteria.

Net Economic Welfare and Other Extensions

In 1972 two Yale economists, William Nordhaus and James Tobin, proposed a Measure of Economic Welfare (MEW) (now better known as ‘Net Economic Welfare’ (NEW)) in which they began with National Income from which they added the value of leisure time and the underground economy (including under-the-table services such as babysitting, but excluding illegal activities) and deducted environmental damages, the costs of education and health expenses which they judged ‘defensive’, and expenditure on personal security, police services, sanitation services, road maintenance, and the military. The resulting measure proved to have been growing steadily, but more slowly, than NI since 1929 in the US.

This triggered an plethora of associated measures. A popular one is the ‘Genuine Progress Index’ (GPI) proposed in 1995 which made many further adjustments, some of which involve judgements which experts might consider little more than opinions. The GPI for the US only goes back to 1950, but suggests an actual deterioration in recent decades.

However there is little agreement, no internationally comparable data, and no data series for New Zealand, for these new measures. So whatever their merits – they provide a useful base for a discussion of the value of GDP as an indicator of welfare – they are of little practical use.

The most promising development is that in 1993 the SNA set out a procedure for subsidiary tables which are slowly being developed on such activities as the environment, resources and housework, and which may ultimately lead to more general measure of sustainable economic activity, including non-market activity. But until these developments are completed – and even then they will address only some of the defects of GDP – the only measure that seems to meet the practical requirements of availability and rigour is GDP itself, although its use is limited by the caveats of its relevance to welfare discussed above.

Composite Indexes such as the Global Competitiveness Index

There is a practice of collecting together a number of indexes which are loosely related to economic performance and aggregating them. Into a composite index. Perhaps the best know of these is the Global Competitiveness Index, published by the Swiss-based World Economic Forum. Like the McDonalds PPP index, such composites are seized upon by journalists eager for ‘news’. The intellectual underpinnings are less compelling. The sub-indexes from which they are derived tend to be what is available and which suit the opinions of the index constructors, and the weightings of the components tend to be crude. Sometimes it is not even clear whether the variable should be positive or negative.[16]

Typically these indexes are not statistically validated, the opinions of the index constructors being the only justification that the index reflects some economic or social reality. There is no study which shows that the Global Competitiveness Index is usefully associated with economic growth. Even were there one, it’s status would be an input measure, not a(n output) measure of actual performance.

Human Development Index

The Human Development Index (HDI) has been proposed by the United Nations Development Agency, following a long debate in which economist Amartya Sen played a key role. It combines GDP per capita (PPP adjusted) with measures of educational achievement literacy and longevity, following Sen’s notion of the key notion of ‘capability’ which refers to the alternative functionings (‘life choices’) a person might have which indicate the freedom of choice a person has over their life. Material consumption is only a part of that totality, so health and education measures are included.

There are HDI tabulations for international comparisons, which discriminate among the poorer countries and sometimes dramatically change the placing of countries – most famously the Indian State of Karalla which is very poor but has world class longevity and literacy. However the measure is not very useful for rich countries, which tend to attain the maximum levels on each of the indicator the sub-components and so bunch together. Even so, the approach might be extended for them by incorporating measures of sustainability, quality of life and leisure. This has yet to be done.

Full Income

A useful measure, pioneered in Australia, has been ‘Full Income’ in which market income is adjusted for leisure and for the economic value of household assets (such as an owned home, consumer durables, and cars). However this measure is largely used to assess individual households rather than to assess aggregate welfare.[17]

An Index of Family Wealth

A recent proposal has been to use an ‘Index of Family Wealth’ as an indicator of welfare. [18] The indicator is rather unconvincing since it is based on a collection of some household items of families with 15 year old children, so it is neither comprehensive in coverage nor of the population. In any case it is a measure of household asset possession (ignoring financial wealth and debt), not of material product: it is a stock not a flow.

There been no attempt to validate the measure as relevant to welfare nor to fit it into a comprehensive theoretical framework. Another difficulty, evident in recent work by the Ministry of Social Development’s deprivation index, is that while a lack of items may be evidence of deprivation, at the other end of the scale there is a heterogeneity of possessions indicating high welfare. For instance some rich households may have a weekend bach, others may instead have a boat, and yet others neither but they may go regularly on overseas trips.

Does the Pursuit of GDP Undermine Wider Goals?

Much of the criticism of GDP as a measure of welfare is based upon an unease that its pursuit undermines wider social goals. There are some justified sources of such unease. At times, and in places even today, GDP (or perhaps just the unregulated market) growth has resulted in environmental degradation, increasing income inequality, plus other social ills such as rising crime. But while GDP growth has been associated with such detriments in the past and in places, in other times and places it has been associated with cleaning up the environment, less inequality, and reducing crime.

The unease with GDP is reinforced by the advocation of policies which are justified by the pursuit of higher GDP and yet which appear to damage other social goals. There is not the space to go through every argument and every instance, but a current New Zealand debate is revealing.

For various reasons every government intervenes, by spending and taxation, to change the composition of GDP. There is a theory which says that such interventions will reduce GDP (or, more tenuously, the growth of GDP). There is also an argument that such interventions may enhance GDP (or its growth). Advocates of the first argument have attempted to collect evidence to support their case (the same tests are also implicitly testing the second argument). Despite their persistence and ingenuity, to the scientific eye the advocates have quite failed to provide sound evidence.

I was surprised by this failure. While there may be beneficial effects on GDP growth from government spending, these tend to be long term, whereas the theory would predict the effects of taxation would be reasonably quick. Given the lack of convincing empirical evidence one concludes that any effect is so small as to be unmeasurable, and may be ignored within reasonable bounds.

But suppose there had been evidence that government interventions had depressed GDP. The interventions may still be justified if the differently composed – but lower – GDP was socially superior. It is not implausible that, given an effective and democratic political process, that the government interventions shift the economy in a more socially superior direction.

In fact nobody is a total supporter of GDP per capita as the ultimate social target. A ready means of lifting New Zealand into the top half of the GDP stakes would be to execute everyone over the age of 65. (Executing children too would take GDP per capita near Luxembourg levels.) A nation has higher goals than GDP per capita.

Of course the government should assess the effectiveness of its interventions, and ensure the burden of taxation is as light as is possible for given social goals, within those reasonable bounds. The evidence seems to be that New Zealand is comfortably inside the range, of, say, the tax burden or spending ratio to GDP.

Has GDP any Relevance to Welfare?

Given the above discussion has GDP any relevance to national objectives? The short answer is that a growth in GDP is an indicator of the ability of the community to increase its market production. This increase may result in greater community welfare insofar as
– it creates jobs for those who would be otherwise employed;
– increases Sen’s ‘capability’, indicating the freedom of choice a person has over their life. (Important instances of such enhancement could arise from spending on education and health, and the provision of community, cultural and recreational facilities);
– the resulting composition of GDP reflects national values. (In New Zealand’s case this would include more (private and public) spending on health services, education, on cultural and recreational services, and on environmental protection and enhancement.)

On the other hand, care has to be taken to ensure GDP growth does not result in social bads such as crime and social dislocation, and pollution and environmental destruction.

This approach s integral to the government’s ‘Growth and Innovation Framework’ and to its ‘Sustainable Development Strategy’.

Using GDP

The existence of GDP (or one of its associated measures such as NI) as a measure of economic performance is largely fait de mieux, there being no alternative which is as rigorously and comprehensively constructed, available over long periods, and for many countries. Perhaps one day there will be other measures – such as New Economic Welfare – which will have conceptual merits over GDP and which will be as readily available in comprehensive rigorous comparative data bases.

However there are positive aspects of the SNA cluster of measures (of which GDP is the most prominent) which is useful given a remit increasing the capacity of the New Zealand economy to produce in order for the nation to pursue its wider goals. That GDP is imbedded in an system of national accounts enhances its usefulness for those with concerns of sectors, exports and productivity.

However, GDP is not the ultimate national goal. The concerns captured by GDP are but one component which contributes to it. Sometimes other considerations may mean that a policy will depress GDP or inhibit its growth. It may be appropriate for agencies with primarily an economic remit, to draw the government’s attention to any depressing effects of the policy. But ultimately they will accept that in the government’s judgement the resulting composition of GDP may be socially superior. (Note, however, there is little evidence that the overall impact of interventions has been deleterious on GDP, so the effect of any particular one may not be great.)

Given the Government’s Growth and Innovation Framework specifically embraces the open economy – it will want to think about GDP and GDP growth in an international context. The best available readily measure would New Zealand’s PPP adjusted per capita GDP relative to some group of countries average (rather than the ranking between countries). The natural group of countries for comparison would be the OECD, although future additions to membership make comparisons over time complicated.

Moreover, as we have seen, PPP adjusted per capita GDP suffers from various measurement defects, including it is published for only every third year with a long publication lag (of almost three years). Given these difficulties what aggregate measure might we choose to assess the economic performance of the economy?

Choosing a Measure of Economic Performance

The first principle is that the measure should be a relativity not a ranking, that is New Zealand should be evaluated against some average performance of a group of countries. .

Given the need is for a robust and internationally accepted economic measure there is little available other than GDP measured in PPP prices. Where this is not immediately available it can be updated from the latest benchmark year by using volume GDP growth estimates. Ideally, and hopefully in the next few years practically, other related measures from the SNA system will become available. The most useful from the suite might be National Income measured in PPP prices. When a choice is offered between GDP on a production basis and GDP on an expenditure basis, it is likely that more weight should be given to the former, because of New Zealand’s lack of control over its terms of trade and the practice of international protection.

The current practice is to scale the GDP measure by population. It is recommended that this practice be continued until there are reliable estimates of hours worked. There is probably little merit in using the interim step of scaling by workers, because of differences in the treatment of part and full time workers.

What group of countries should the performance measure compare itself with? Here are some choices, noting that a major limitation on choice is that not all countries are included in the OECD exercise. The possible combinations are enormous, so only some obvious choices.

Countries

1. All the countries for which the OECD provides statistics. This consists of the 30 OECD countries, 8 candidate EU countries who may soon join the OECD, and 5 other countries Croatia, Israel, Macedonia, the Russian Federation and the Ukraine. In my view this group is too diverse, and in any case a number of them have standards of living and economic structures which are rather different from New Zealand’s.

2. All OECD countries. The difficulty here is that more countries are likely to be joining the OECD soon, so the group is not stable.

3. Pacific countries. This is a grouping which the PPP estimation process groups together: Australia, Canada, Israel, Japan, Korea, Mexico, New Zealand, the United States. (Israel is for convenience.)

4. A group of countries which are small, high income, and geographically isolated from the three main economic engines of the United States, the European core, and Japan. they might be Australia, Finland, Iceland, Ireland, Israel, New Zealand, Norway and possibly Denmark, Greece, and/or Portugal. The notion here is that size and isolation are two particular problems for New Zealand.

5. Australia, by itself, although comparing with a single country is likely to generate unnecessary rivalries and inappropriate comparisons of policies.

6. High middle income countries. The OECD partitions its 43 into three groups, and partitions again the middle group of countries into high middle income and low middle income country. New Zealand belongs to the later, which consists of 14 countries with Israel, Cyprus, New Zealand, Spain, Portugal, and Greece in order, at the top. The high middle country group (in order) is Iceland, Canada, Netherlands, Ireland, Austria, Japan, Belgium, Germany, Australia Sweden, Italy, United Kingdom. Finland and France, As the accompanying diagram shows, the division is not entirely arbitrary.

The challenge of New Zealand rejoining the High Middle Income Group would involve it growing about 1 percent p.a. faster in GDP per capita terms for a decade (on the current measure). Ultimately, that is probably the goal that New Zealand really seeks, although the path to the goal can be articulated in various ways.

Notes
[1] Note that NI (and, more generally, the National Accounts), cover only market assets, and do not allow for depletion of natural and environmental resources.
[2] More recently, the succeeding year GDP is valued in the prices of the preceding year. The longer series is constructed by chaining linking the overlapping year increases.
[3] The problem of measuring inventory change is not included here, because the inventory valuation adjustment issue which arises because prices change with the period of measurement, applies to nominal estimates also.
[4] In principle price indexes ought to be able to answer questions like: What amount of income in 1903 would enable a person to be on the same material standard of living as, say, the average wage in 2003. Because of the many new products over the hundred years it is difficult to even think about how to answer this.
[5] Not described here is the complicated system of weighting prices between countries.
[6] For instance between July 2001 and December 2003 there has been a 44 percent rise in the euro relative to the dollar. Yet it would be nonsense to infer there had been a similar change in the relative GDPs. If a country devalues by 19.45 percent, say, as New Zealand did in 1967, production did not fall overnight by 19.45 percent.
[7] The Economist has recently introduced a ‘Tall Latte’ PPP based on its price in Starbucks in 19 countries. The correlation coefficient between Starbucks latte and McDonald hamburgers was .79, suggesting either measure has some relationship with a true PPP but probably not a perfect one.
[8] For the 1985 PPP estimates, New Zealand was asked to provide a construction price for a two-up/two-down brick terraced house, while the price for the equivalent standard New Zealand bungalow was not requested. Because New Zealand builders were unfamiliar with such terraced houses their price was well out of line with typical construction prices in New Zealand. In the 1985 PPP adjusted GDP data for New Zealand, the volume of capital formation appears low relative to the volume of consumption. This instance has since been addressed, but it cannot be entirely avoided.
[9] The table is based on the 1990 and 1998 tabulations. Only 24 countries were reported in 1990. Germany was omitted because of the change in boundaries over the period. It is assumed that the average growth rates for the 23 are correct, since PPP adjusted data only gives relative growth rates.
[10] However, considerable caution is necessary in the use of the hour figures. There does not seem a lot of confidence that they are accurate/comparable.
[11] The exceptionally higher placing of Luxembourg probably reflect its rather special population (just as major cities tend to have higher per capita GDP than the rest of the economy) together with many of its workers commute from neighbouring countries. Its GNP relativity would be lower.
[12] A practical, rather than conceptual, omission is the unmeasured parts of the gray and black economies. We do not know their extent – attempts to measure it are unconvincing academic exercises – nor the extent the under-measurement differs from economy to economy or over time.
[13] When home childcare is replaced by paid childcare, GDP increases, even though there may be no effective change in total (market and non-market) economic activity.
[14] Resource depletion and environmental pollution may be a part of ‘Gross’ Domestic Product, but they are not deducted when ‘Net’ Income is derived, despite the activity being as unsustainable as capital depreciation.
[15] David Hume would be appalled to have his name associated with this as a welfare principle.
[16] A famous case, albeit from some years back, was a dispute as to whether the divorce rate was a positive in a national welfare index, indicative of a tolerant liberal society, or a negative indicative of marriage instability. (It is not difficult to see how the opinions of the index constructor would determine the way the divorce rate would be included.)
[17] Suzie Carson and I, using the New Zealand Household Survey data base, added to financial income an imputation for owner-occupied housing and found this ‘fuller income’ a better predictor of the expenditure items we were investigating. This suggests that ‘fuller income’ may be more relevant for household behaviour and welfare.
[18] It should be noted the article advocating the Index of Family Wealth makes some unfounded criticisms of the PPP measure which suggests the writer is not familiar with its methodology:
“The studies use rather outdated estimates of living costs. Other technical issues (such as the appropriateness of the basket of goods used in the measure) also raise concerns that PPP figures are not always reliable for making cross-country comparisons.”
The studies do not use ‘outdated estimates’: the 1998 estimates use 1998 prices. The concept of ‘living costs’ is not used by statistician and it is not clear what it means. What is meant by ‘the appropriateness of the basket of goods’ is also unclear, since the PPP measure covers all goods and services.

Various tables from the original report are not included

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The Unrepentant Reformer: What Does Michael Cullen Think Of Rogernomics Now?

Listener: 17 July 2004.

Keywords: Political Economy & History;

Only two ministers opposed the Labour Cabinet’s proposal for a flat income tax in December 1987. A month later, one, Prime Minister David Lange unilaterally canned the proposal because it would make the poor worse off. The other was Michael Cullen, then Minister of Social Welfare, now Minister of Finance.

The 1988 package that flattened the income tax system made the poor worse off, too, as it was funded by eliminating tax exemptions, by raising GST and – when National came to office in 1990 and found a gaping fiscal deficit – by savage benefit and other spending cuts. For, despite the promises, the tax cuts did not stimulate economic growth. They were followed by six years of falling per capita GDP, the longest postwar recession (longer than the Depression, though not as deep).

I do not attribute the recession to the tax cuts – it was due to economic mismanagement. Tax cuts, including those advocated today, have negligible impact on the long-term economic growth rate. The 1988 ones just shifted income from the bottom 80 percent of the population to the top 10 percent.

What, today, does Cullen think of the economic regime we call Rogernomics? In a recent paper, he said, “The remarkable thing in retrospect is that while much of the change was necessary, it was … mishandled so the reforms produced smaller benefits and higher costs than could have been reasonably anticipated.”

So Cullen is an unrepentant reformer. But unlike his Labour colleagues who dominated the 1980s, he is not an extremist, and is more sensitive to the population’s “conservatism” (his word). This tension remains deep within New Zealand politics. Aside from the extremists, who don’t seem to have learnt from their past failures, we find a populace who either resist those (non-extreme) reforms that Cullen supported, or whose support is tinged with incomprehension – an understandable outcome from their overselling by the Rogernomes.

Nostalgia for a bygone era is understandable, especially if the benefits of subsequent positive changes are overlooked and any new detriments emphasised. Rob Muldoon, Prime Minister from 1975 to 1984, was especially nostalgic, although he also understood that political and economic change would undermine the power on which his authority was based. Sadly, the man who had been moderately progressive when he was Minister of Finance from 1967 to 1972 became a very reluctant reformer in his later term. Although massive changes occurring to New Zealand’s external environment and society were pressuring the domestic economy, he resisted reform, ignoring the changes and suppressing the pressures.

Economic management is like a boat being driven down a narrow strait by winds and tides over which it has little control. Muldoon all but sucked us into the conservatism of Charybdis’s whirlpool, going round and round getting nowhere, Roger Douglas (and later Ruth Richardson) almost smashed us on Scylla’s rocks. (Have you noticed that the economic rhetoric is always predicting calmer seas. One is reminded of the woman who sued for divorce from her economist husband on the grounds of non-consummation. “He would stand naked at the end of the bed promising that things would get better, but nothing else happened.”)

Labour came to power in 1984 with an agenda to make up the reform deficit of the previous decade in three and a bit years. But the heroic radicalism led to policy extremism, although exactly how it got captured by the rich has still to be explained. Some of the extreme policies have been reversed since 1999. The government has created Kiwi Bank, bought back much of Air New Zealand and the rail track, and struggled with the deregulatory mess that occurred with the privatisation of telecommunications and electricity supply. The tax system and social welfare have become more progressive. There is a commitment to public supply (and, usually, public funding) of education, health services and accident compensation. Employment relations have been placed on a co-operative rather than competitive (class-based) basis. And so on. Some of these changes are a result of the failures of extreme, ill-thought-through policies: others reflect Labour returning to its traditional values.

From the perspective of Muldoon, Cullen appears to be a Rogernome. From the perspective of those who saw the need for reform while Muldoon dithered, but who were not pro-rich extremists, Cullen is an anti-Rogernome. (Like any good Minister of Finance, Cullen is also a fiscal conservative, most reluctant to spend money the government hasn’t got or has already spent elsewhere.)

It must have been lonely for the new Minister of Social Welfare back in 1987. As he watched the Labour government disintegrate, first internally and then publicly, did he imagine that one day he would be in charge of keeping a new Labour government together, while keeping the economy on a reforming course as other pressures assail it?

Contributions to the listener 65th Anniversary Issue

Listener: 10 July 2004.

Keywords: Political Economy & History;

Wool Price Collapse – the End of the Golden Wether
Once the New Zealand economy could be described as depending upon processed grass. After the wool price collapse, that was never going to be enough. On 14 December 1966, the auction price of wool tumbled, eventually to levels comparable to those of the Great Depression, despite a brief respite in the early 1970s. At that time, wool and sheepmeat combined earned more than half of all New Zealand export revenue. The resulting rupture to the economy included a devaluation in October 1967, the infamous ‘nil-wage order’ of June 1968, and the beginning of a decade and more of inflation. The economy stopped growing as fast as the rest of the world. Exports were forced to diversify. Today, wool earns less foreign exchange than tourism, dairy, meat, forestry, horticulture, fish, or machinery exports. A different society and politics has been the result.

July 1967 – The End of the Pound
After a long argument over what it should be called (Denis Glover wanted the ‘zac’), and some bizarre proposals for the coinage (a rugby player on the 50 cent piece), the dollar replaced the pound as the nation’s unit of currency on DC Day. Under the tutelage of finance minister Rob Muldoon and Mr Dollar we replaced the system of 20 shillings and 240 pence with the simplicity of a 100 cents. The total conversion cost $6.5m, which was more than covered by the sale of old coins for scrap metal and collector’s coin sets. An initial run of 27m banknotes was issued, but the pound didn’t cease to be legal tender until 1982.

March 1985 – Freeing the Dollar
Critics and defenders identify the floating of the dollar as having the greatest impact of any Rogernomics policy. No longer was the value rigidly fixed to another currency, but it found its own level reflecting those who wanted to buy or sell it. It was a logical consequence of the 1971 Smithsonian Agreement which end the world’s fixed rate regime, but a totally free floating policy (reversed in March 2004) was unusual. The dollar floated up, to the joy of consumers (who get cheaper) imports, and the financial sector (who like a ‘strong’ dollar). But it devastated the export sector, business and jobs were depressed, and per capita economic output fell for six successive years. As Roger douglas began dismantling the welfare state – a policy continued by Ruth Richardson – as subsidies were eliminated, import duties reduced, and state assets sold.

The Biggest Crash
The Tuesday New Zealand share market crash followed Black Monday in the United States. But New Zealand’s crashed deeper than any other rich country’s. The boom, fuelled by promises of ‘Rogernomics’ reforms with their rapid liberalisation of financial markets proved to be fake, unsustained by the economic fundamentals, and dependent on cowboy investment strategies and creative accounting. Despairing investors lost their fictitious fortunes, and some company directors went to jail. Businesses which were market darlings – the long standing and the fashionable – disappeared, or were sold off overseas. (Brierlys almost went down with them.)

With assistance from Tim Watkins

John Ballance: Nationbuilder

‘The Hidden Irish: Ulster: New Zealand Migration and Cultural Transfers’, a conference of the Irish-Scottish Studies Programme of the Stout Research Centre, 29-31 July, 2004.

Keywords: Political Economy & History;

John Ballance was the first New Zealand premier to die in office, and is the second youngest to so die – at 54 years and a month, 30 months later than Norman Kirk. Like Kirk he was premier for a very short time, 26 months – although he had earlier been a cabinet minister for a total of four and a half years. Yet his premiership was one of the most important in New Zealand’s history, even if it gets forgotten behind that of his immediate successor, Richard John Seddon.

Ballance not only created New Zealand’s first effective political party, the Liberals, and instigated major constitutional changes, such as defining the powers of the Governor-General and introducing income tax. His political theories lived long after his death, resonating through the political debates of the early and middle twentieth century. For he was New Zealand’s first socialist prime minister – some would say he was the only one.

Despite Keith Sinclair’s sniffy ‘has anyone heard of an original New Zealand political idea?’ – one might say that of everyone after Plato – this paper focusses on Ballance’s theories, especially – given this conference’s interest in the role of Ulster in New Zealand – on their Irish foundations.

Ballance was born in 1839, at Ballypitmave, near Glenavy in County Antrim, less than 20 kilometres from the centre of Belfast. That made him around 18 years older than Reeves and James Carroll, 17 years older than Joseph Ward, 6 years older than Seddon, 5 years older than Robert Stout, a year younger than Jock McKenzie, and 4 years younger than Julius Vogel, political contemporaries who survived him.

He was the eldest of a family of eleven children of Samuel and Mary Ballance. The Ballances were of puritan stock who had come to Ireland in the wake of Cromwell’s rule. Samuel, a reasonably prosperous tenant farmer – his farm’s area was almost double the average – was an Anglican with ‘strict evangelical tendencies’, Orangeman, and voted Conservative. Although Samuel blooded his son in politics – taking him to meetings and having him write his speeches – his biographer, Tim McIvor, conjectures that there was a serious rupture between father and son. Certainly the son took a very different political path.

The more important influence was probably his mother who was almost two decades younger than her husband – they married when he was 39. She was brought up a Quaker, but attended a closer Methodist chapel – on Sunday afternoon, after the family attended church in the morning. His formal education was typical for his generation, leaving school at 14, with the Victorian ethic of self-help and self-education having him enrolling in evening classes in Birmingham to study politics, biography and history, and attending lectures by major figures of the day such as John Bright, Richard Cobden, Michael Faraday and Joseph Chamberlain.

McIvor suggests that by the time he was 18, his ‘attitude to the Irish question may have already been at some variance with mainline Protestant opinion, in that his mother’s liberal influence and his own somewhat bookish disposition combined to make him unsympathetic to the aggressiveness of the conservative Orange majority.’ McIvor does not think the Irish famine of the 1840s directly impacted on the Ballances, since it hardly affected his region. But the sectarian riots of 1857 did, and he wrote critically of them in later years. Soon after they petered out, he left Belfast for Birmingham. Nine years later, at the age of 27, he sailed with his wife, Fanny, to join her brother in Wanganui, where he settled for that part of his life which was not a Wellington politician. (The move was for health reasons: Fanny died three years later in 1868.)

This is not a biography of the man, but of his ideas, so it skips over his life, except to say that his employment was in various small commercial enterprises until he became the editor and proprietor of a Wanganui newspaper, and later entered parliament in 1875 where – other than between 1881 and 1884 following an electoral defeat – he was an MP to his death. As a cabinet minister under George Grey, with whom he did not get on, and Stout with whom he did, he held all major portfolios, excepting Colonial Secretary. Everyone seemed to like him for his amiability, courtesy, consideration, gentleness of manner, and transparent honesty although he had political enemies because of their perceptions of his views.

His essentially humanitarian views, adopted with a quiet enthusiasm and promoted with practical commonsense, evolved over time. Stout says that Ballance’s budget speech of 1878 was of the Manchester School. ‘As the years wore on he began to see that the laissez faire policy was not the last word spoken on political science. He gradually drifted away from the orthodox political economists, becoming more radical and socialistic, following in this way the lead of such men as Toynbee, Sedgwick, Marshall, Ingram and others.’ (Stout seems unaware that even in 1893, when he wrote the obituary, Marshall was very orthodox.) Stout goes on that Ballance was pragmatic ‘approach[ing] many questions as a merchant would, dealing keenly and in a business way with bankers and others who had business transactions with the Government and making a bargain with all the shrewdness of a business man.’

Stout’s ‘pragmatism’ may reflect what later writers saw as Ballance’s radicalism tempered by his commitment to democracy, frequently cautioning his followers that policies he supported could not be pursued because the electorate was not ready for them.

Ballance’s intellectual shift in the 1880s helps an understanding of one of the puzzles of late nineteenth century New Zealand politics upon which both Ed Bohan and David Hamer, among others ponder, and partly explains the bitter falling out with Grey in 1879. We might describe Grey as a political Liberal, in the sense that Samuel Ballance was a political Conservative. John Ballance may have started that way, but he became increasingly radical, in part no doubt from his reading, but also because of the Long Depression of the 1880s which, as his opponent Harry Atkinson was to learn, ‘orthodox’ economics – as it was – did not help much. Reeves is right to describe the Ballance led government as ‘Progressive’, even if it still called itself ‘Liberal’.

Yet despite this transition, and the associated impacts of reading and the political economy on him, one can see that his Ulster background shaped him, albeit it was not that of a conventional Ulster protestant. His support for women’s franchise, a characteristic of most ‘progressives’, is usually attributed to the keen interest of his second wife, Ellen. His mother, who had died when he was 25, may also have influenced him. In any case, Ellen came from County Down.

We make take too, that Mary Ballance was also influential in encouraging her son’s religious tolerance, and while his approach to the Maori was not as liberal as one might have wish by today’s standards, it was considerably more enlightened than his predecessor Native Minister John Bryce (who, coincidentally, was jointly from the same electorate in multiple MP days).

Ballance’s farm background may suggest his particular interest in land issues, although there is the puzzle why as eldest son he did not take over the family farm. Brad Patterson argues convincingly, there was a strong Celtic influence on New Zealand land policies. But there was a strong New Zealand dimension too. At the end of the nineteenth century almost 40 percent of the Pakeha workforce were farmers or farm workers, and many of the rest depended on farmers for their business. Moreover, the structure of farming was changing dramatically, for the introduction of refrigeration made possible the small farms which Ballance promoted. This new form of pastoral farming was the leading growth sector of its time, around which the rest of the economy and society followed.

Ballance was an agrarian socialist. He wanted land farmed by independent tenanted family farmers – rather than collectives – under a benign public landlord. His policies, implemented by McKenzie, conflicted with the Henry George single taxers, since Ballance favoured a progressive land tax to burst up large estates. Success would reduce fiscal revenue as the size of farms diminished. Hence his introduction of income tax.

Ballance was also an economic nationalist, albeit – as in the case of his views on economic structure – one which reflected his day. His term for this nationalism was ‘self-reliance’, an opposition to borrowing with the objective of freeing New Zealand from ‘servile dependence’ to foreign moneylenders. In his last, 1892, Financial Statement (budget) Ballance announced that the government would not place a loan on the English money-market but would endeavour to finance public works out of the budget surplus. Hamer describes the tone of the statement as ‘ultra-nationalist. ‘He spoke of making New Zealand “a great country” and insisted that the New Zealand Parliament must be free to carry out reforms without hindrance from external influences. If New Zealand had to be sensitive to its credit rating with overseas creditors, then it might not be able to undertake experiments such as the land tax. The priority of the reforms that would make the New World a better place than the Old.’ Those sentiments echoes through later New Zealand politics.

No doubt the speech is also alluding to his dispute with the Governors of New Zealand who had reserved powers for themselves, which Ballance disputed. The British Colonial Office sided with him. Undoubtedly some of his antagonism to moneylending came from his petty commercial experience, some from his reading, but McIvor suggests an Ulster dimension in Balance’s responses to the Irish Question.

‘Initially Ballance hoped that loyalty to the English Crown could be restored through removing rural poverty, which he saw as the basis of discontent. Later he advocated Home Rule, arguing that the Ulster Protestants were by no means solidly against the idea. … In 1881 he moved a resolution … in support of the National Land League and in sympathy with evicted tenants, whom he described as victims of misgovernment, persecution and tyranny. A few years later he wrote … that the Irish Church and the land laws were “the foremost evils to be grappled with” in Ireland.’

Thus both his views on farming and on the relationship between the imperial centre and colonial periphery arose out of his Irish experience. Earlier I listed seven political colleagues of Ballance. Only two (Seddon and Vogel) of the eight were born in England (and despite his snobbish ambitions Vogel as a Jew was an English outsider). Of the remaining six, Carroll and Reeves were born in New Zealand, Ballance in Ireland, McKenzie and Stout in Scotland, and Ward in Australia of Irish parentage. Thus a good part of New Zealand nationalism of the late Nineteenth Century came from people who although born and growing up abroad were already separated from England. It is a nationalism partly rooted in Celtic Lands.

The roots were deep and diverse. Ballance’s early death followed by Seddon’s long regime meant he became a forgotten political figure. Although not immediately, for over the next two decades, his political ideology represented a standard against which any Liberal policy was tested. Yet even as he became personally forgotten, his ideas were absorbed into New Zealand progressive thought. We would do well to remember him.

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Ticketing the Future

Presentation to the Annual Conference of the Industry Training Federation, 16 July, 2004, Wellington.

Keywords: Education; Labour Studies;

Economists are not very good at forecasting the future. I look at what I wrote twenty years ago, and realise just how much I got it wrong. Or you might consider that before you is one of the first New Zealand university students to use a mainframe computer, someone who encouraged his children to use ZX81s, who was probably one of the first economists in New Zealand to use a PC (a 186), and who still failed to forecast the ICT revolution.

So let me talk a bit about the past. One of my embarrassments is that I am the only member of my parental family who does not have a ‘ticket’. A ‘ticket’ was the Christchurch working-class expression for having passed an apprenticeship of some kind, or in the case of women (when one thought about them in this context) an equivalent technical qualification. You might think that a university degree was considered of greater significance than a ticket, but the ticket was evidenced that one could coordinate hand and brain (and indeed eye and other senses), whereas a degree only evidenced use of the brain. (I add that today I take pride that my son has rebuilt a car, worked as a mechanic in a mountain-bike shop, and regularly strips and rebuilds computers, despite his professional occupation. His grandfathers, were they here, would take pride in the demonstration of those manual skills too.)

I do not want to focus on apprenticeships, because today industry training has a wider remit. What I want to talk about is the importance of pride. In my youth, being a skilled craftsman was not evidence of failure, but a matter of pride: pride in having skills, of having those skills recognised, respected and rewarded, and of being able to apply those skills as independent human beings for a socially usefully purpose. The most important thing an industrial training program can give a worker is that pride, pride that he or she is doing a good job together with the confidence that he or she can adapt to new circumstances as the job evolves.

Looking ahead this need to adapt is crucial. I remember the pleasure as a student learning the chemical symbol for lead, Pb, was derived from the Latin word plumbum, which is also the root of the term plumber. Today’s plumbers work with many more materials than lead. That leaves a problem for those of you training plumbers. We cannot predict all the materials that future plumbers will use, so you have to teach generic material skills. And a whole lot more besides. Today’s plumbers use computers. I bet they were not a part of their industry training a few decades ago. (As an aside, the way New Zealanders have has seized upon using computers is an tribute to our education system.)

Adaptability relates to every one of your training programs, and not just for plumbers. The training focus must not just be the here and now, but giving the students the generic skills for an unknown future and the confidence to apply them. Why is this adaptability needed, why are jobs change faster than at any previous time in human existence? We can group all the reasons into three categories: technological change; consumer demands; and globalisation.

As I have said, I cant tell you much about the future technology. Even if the rate of innovation of general purpose technologies were to stall, those recently put in place are likely to cause major change for at least a generation, as their implications are developed. Canterbury University economist Ken Carlaw, in a new book which he co-authors, reminds us that it took a couple of decades for manufacturers to realise that when electric motors replaced steam power, they no longer had to organise their factories around a central power generator, but could completely reorganise it according to workflow – hence the assembly line. There are similar rearrangements of the workplace arising from the computer which we can only dimly discern.

The second source of change is consumer demands. Once upon a time provision was on the basis of one size fits all. Today with affluence and increasing social heterogeneity, the customer has diversified wants. These run from non-standard products to accompanying service. I do not expect that trend to change much, although the use of the web is cutting out some middle retailing. That sharpens up the service requirements of those left. Others, tradesmen among them, may have to sharpen up their service needs too.

As well as quality of service, there is a need for improving quality of design. New Zealand tradesmen have not generally been design conscious: the expressions ‘jerry job’ and ‘botch’ were part of the lexicon that I grew up with. But consumers are becoming more design conscious – look around an upmarket furniture or fashion shop, while ‘Lord of the Rings’ was a design job we are greatly proud of. We end could up with design consciousness in some areas, but not others. To avoid the cleavage, and improve export prospects to more design conscious markets, we need to promote design as an integral part of a job.

The third big source of change is globalisation. There is a tendency to see it in terms of particular policies – such as free trade, or institutions – such as the World Trade Organisation. However, it is more helpful to see the closer integration of the world economy as the consequence of the diminishing reduction in the cost of distance. That these falls have been dramatic is easily demonstrated by considering the world centred on New Zealand. One hundred and fifty years ago it took three and more months to sail from Britain to New Zealand – carrying goods, people and information. Changes since then has reduced the shipping time to about three weeks, quartering the effective distance in the world. But people, and light valuable goods can fly to Britain in under two days, a reduction of more than 98 percent. Information can be zipped around the world virtually instantaneously.

That generates an example of the rearranging of the workplace. Today the workflow may not just go from bench to bench or office to office. Outsourcing means it may go from establishment to establishment, and the establishments may not be different towns or even different countries. I happen to have a Marsden Research Grant on globalisation so it is a topic I can go on at some length, but today I want to focus on the implications for industrial training.

What globalisation means, what it has meant for the last two centuries, is that jobs are being relocated, a relocation not just between towns in a country but between countries. The New Zealand economy was built upon such a relocation: of sheep and dairy farms from Britain, following the fall in the costs of distance from refrigeration, steam ships, and telegraph cable.

We have some understanding of the future trends – those which are already underway. Let me illustrate them by reference to China, for it seems likely that Chinese manufacturing is going to set the standard for general manufacturing, that is manufacturing which requires relatively untrained workers. China has a lot of them – mainly on farms in the interior, and the expectation is that they will flow into the Chinese factories on their Pacific Coast, and that probably means there will no significant rise in their real wages for some decades, even though the manufacturing process will get more efficient. Meanwhile China is getting better access to the world markets. It has joined the WTO which gives it lower (most favoured nation) tariffs. and these will come down further as a result of the Doha round trade negotiations. We must expect is to see Chinese manufacturing increase a proportion of the world supply. (And even if they cock up their economy, there are other Asian countries – Indonesia – which will play a similar role.)

Fortunately many of our industries – such as those which will export food and tourist services to the Chinese – will benefit. The future for general manufacturing in New Zealand is less rosy. Basically it can compete only by paying Chinese peasant wages. Some will argue the case for barricading the New Zealand manufacturing market with tariffs and import controls, in effect subsidising New Zealand manufacturing wages by everyone being paid partly at the Chinese wage rate via high priced local products. However, that does help manufacturing exports, because around 30 percent of New Zealand’s exports of goods and services are manufacturing of one kind or another (and that excludes primary product processing such as dairy factories and freezing works). A barricaded manufacturing sector is going to be a greatly diminished one.

This fate is a danger for some of the service industry too, insofar as the ICT revolution makes it possible to supply many services offshore – outsourcing to Bangalore is the parallel most used, but dont forget retain competition from the likes of amazon.com. And if parts of the manufacturing and service sector are poorly functioning, those who provide services to them – the rest of the economy – will suffer too.

What are options? One would be to close down the relevant sectors. The alternative is to shift into those activities which the poor of the world – the ones we symbolise by Chinese and Indians – cannot compete: that is to move out of low wage general manufacturing and tradeable services into the high wage high skill parts of each sector. What we have to do is produce things which the poor low-skilled workers can not or, rather, we have to produce in ways which they can not. That means using our higher level of education and skills in the production process.

Thus the ITOs have a crucial role in the economic strategy, for if we dont upgrade skills we cant run the production processes which pay wages above the Chinese rate. This is not just a matter of raising skills for our current industries, but contributing to the shift towards more advanced industries by providing for their skills too, as current activities get competed out of business.

This approach has to be seen in a context of the current strategy of workplace reform: Smart Enterprises and Smart Workers. An illustration of the approach comes from the education industry. In the early 1990s we tried to improve teaching by putting schools under competitive pressure in the belief that this would raise educational standards. It was an approach riddled with ideology so the outcomes were not properly monitored, but there is no evidence it actually worked, although it did lead to an flowering of schools’ public relations activities. More recently, the government has restrained the competitive dogs of war, and focussed on how the teaching workplace can be enhanced, particularly by changing teacher attitudes and improving teaching practices. What is happening in that workplace reflects a wider change off attitude to the workplace represented by the switch for the narrow legalistic hierarchical approach of the Employments Contract Act to the broader person-centred co-operative approach of the Employment Relations Act. Workers and employers are working together to improve business productivity rather than hoping that external competition and management imposition will do the job for them.

Industrial training is a part of this new strategy, not simply by giving workers the skills the need and will need. By getting them to invest in the work process, they will enhance productivity directly through their better skills and indirectly through their greater commitment. Pride of work is a crucial element in this nexus. The pride in having skills, of having those skills recognised, respected and rewarded, and of being able to apply those skills as independent human beings for a socially usefully purpose. It’s a pride my Dad’s generation valued. We must ensure that his grandchildren’s and succeeding generations respect it as greatly.

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The Marsden ‘Globalisation and New Zealand’ Project (hamilton Presentation)

Presentation to Hamilton Branch of the NZIIA, July 20, 2004.

Keywords: Globalisation & Trade;

In late 2003 I was awarded a three year Marsden Grant to study globalisation and New Zealand’s role in it. Globalisation is a topic I have been long working upon, developing out of my earlier study of the New Zealand economy summarised in my book In Stormy Seas: The Post-War New Zealand Economy, whose theme was that the fate of New Zealand will be largely a consequence of what happens overseas, together with our ability to seize the opportunities and manage the problems. This paper sketches the research program, and looks at one of the issues – international trade.

What is Globalisation?

Many writers avoid defining globalisation analytically, instead characterising it by a series of phenomenon such as increasing trade, or capital flows, or logos, or international inequality; or to particular international institutions such as the World Trade Organisation or the International Monetary Fund and the World Bank or the European Union, or multinational corporations; or to particular policies such as free trade, liberalised capital movements, and so on. The London Economist described globalisation as ‘international capitalism’: many anti-globalisers might agree, perhaps adding ‘together with US hegemony’, or even ‘imperialism’.

Stanley Fischer, one time chief economist at the IMF, describes globalisation as ‘the ongoing process of greater interdependence among countries and their citizens’. Joseph Stiglitz, who held a similar position at the World Bank, defines globalisation as ‘the closer integration of countries of the world as a result of lowering transportation and communication, costs, and the removal of artificial man-made barriers.’ Both are focussed on contemporary phenomenon. But it is important to take a historical perspective. Scholars argue that nineteenth century globalisation was in many ways a more powerful and pervasive phenomenon that late twentieth century, at least among peoples of European origin because their migration was unrestricted.

Moreover it was not just an inter-nation phenomenon. Indeed it would be ahistoric to think of the states of the beginning of the nineteenth century to be similar to those of today. The modern nation-state was a creation of the globalisation process of the times, as it integrated regions and made central government and national markets possible. The ‘United’ States of American became a more meaningful concept when canals and railways brought the states together.

In the end a simple phenomenon-based definition like Fischer’s, may be the most fruitful. We follow Stiglitz, albeit also covering the nineteenth century, with globalisation is the closer integration of nations and regions.

However, for an economist, a definition is not sufficient. We need a process, a mechanism which underpins the phenomenon. The Marsden research program is organised around the analytical proposition of globalisation is the consequences of the reductions in the costs of distance.

That these falls have been dramatic is easily demonstrated by considering the world centred on New Zealand. One hundred and fifty years ago it took three and more months to sail from Britain to New Zealand – carrying goods, people and information. Changes since then has reduced the shipping time to about three weeks, quartering the effective distance in the world. But people, and light valuable goods can fly to Britain in under two days, a reduction of more than 98 percent. Information can be zipped around the world virtually instantaneously.

If these changes do not seem spectacular enough, think of the changes for meat and dairy products. One hundred and fifty years ago, one could not ship them to Britain at all. The introduction of refrigeration reduced the cost of distance from – effectively – infinity, to a small proportion of the products’ costs of production, and transformed New Zealand’s economy and society.

This recognition of the crucial role of the costs of distance provides an analytic foundation which allows one to explore rigorously many aspects of the modern world from a historical perspective, and to consider possible scenarios for the future of the world and of New Zealand. Not only economics scenarios: among those on which I am pondering are:

– the role and future of nationalism since it largely began as a nineteenth century phenomenon associated with the regionalisation and globalisation. The leads to a practical question of the possibility of cultural convergence in the future – that is that national and regional differences will largely disappear.

A related, but partially distinct issue is

– the role and future of the state which, as we know it today, is dependent upon a reach over its region and therefore accumulated power as falling costs of distance increased its practical reach. What will happen to the state as costs of distance fall and policy issues become international rather than national? Will the state continue to exist? A better form of the question might be what kind of states will we have in the future and what kind of supra-national organisations? The immediate practical question is that of policy convergence, the possibility that in the future all countries will have largely the same policies, at least in some areas – especially economic ones.

I have some tentative views on these issues, but fortunately the Marsden grant is for three years, so I can spend a lot more time reading and investigating and thinking before I come to a definitive conclusion. Perhaps you would like to invite me back then to tell you what I think.

Why Is There Trade?

In the interim, I want to talk about the narrower issue of trade policy, where I can use the formal models of economics to progress our understanding. My focus tonight will be on ‘global connectedness’ which is at the centre of the government’s economic policy: The Growth and Innovation Strategy. For those interested in international relations, trade and trade policy is at the interface with domestic economic relations.

Historically, until perhaps a couple of hundred years ago, most international and inter-regional trade occurred on the basis of absolute advantage, that is the trade occurred because the purchasing country was not able to produce the product very efficiently itself. Examples include spices from East Asia, gold from the Americas and wool from Britain. The costs of distance – the acquiring of the unique products from distant lands – added to the end price, but it did not affect the location of production.

Two or three hundred years ago, trade based on comparative advantage began to develop in which a particular country or region chose not to produce something it could, but produce something else which it could do more efficiently and which it would exchange for the first product. So New Zealand could produce machinery, but instead it specialised producing pastoral products which it exchanged for machinery produced in Britain, which similarly specialised by not being self-sufficient in food.

The costs of distance are important for such international trade, because they influence location of production. For instance, New Zealand had negligible prospects as a meat or dairy exporter until refrigeration which, in effect, reduced the cost of transporting the products to Britain from infinity to a tiny fraction of the costs of production (especially with the addition of telegraph and steamships).

I used the expression ‘chose’ to describe the exchange arrangement. Practically the market signals favour the exchange, so it is individual consumers which ‘chose’. However there is also choice in public policy, because a country can suppress trade by border regulation via import controls and tariffs. Many did. New Zealand was lucky that for much of the last two centuries the British food market was open to it, although equally potentially lucrative markets in North America and Europe have been and still are closed, as has increasingly the British market since the Second World War.

New Zealand policy has been fixated on comparative advantage trade. Any economist who has mastered its formal theory cannot be impressed by the elegance of the central idea that specialisation is beneficial, and there are gains from allocating resources to the specialist industries. Many who have not mastered the theory support the policy conclusion of free trade either for ideological reasons or because they or the employers are personal beneficiaries – or both.

However when we come to measure the gains from improved allocation arising from the removal of tariffs and import controls, we find they are generally small, say less than 1 percent of total output. To give an example where economic policy based on this theory came a terrible cropper, one only has to recall the reforms of the 1980s where a 25 percent increase in GDP was promised from improved allocation, but never delivered.

It is true that reductions in tariffs will benefit some activities and people, but only at the expense of detriment to others. Which is one of the reasons why the protection is fought over so bitterly. (Sometimes a large industry in one small country can be markedly damaged by protection and export subsidisation in another, to the detriment of the first country as a whole. Nothing I say here implies that New Zealand will not markedly benefit from a reduction in world agricultural protection, a topic to which I return.)

The Case for the Open Economy

If the allocation gains from the ‘free’ trade are small why pursue it if one is not ideologically or self-interestedly inclined? At is issue is that of an open economy strategy, which is not the same as a free trade one. However, one may have to practice the latter in order to pursue the former, for unless there is some mutual disarmament of protection no one country can have a viable external sector. I give two arguments for the open economy which do not rest upon the formal models of comparative advantage.

The first involves consumer choice. Economists are having a lot of trouble measuring consumer choice, so let me give an illustration of how it works. I was struck when I was in Washington on my Fulbright fellowship, that none of the three grocery stores I used sold soft cheeses such as Brie and Camembert (although at a mega-store the choice was greater — probably about as much as in my local New Zealand supermarket). The choice was limited to hard cheeses and Philadelphian. Apparently most American cheese goes into pizza, but additionally the payment system to American dairy farmers gives little incentive to develop new cheeses.

External interference also reduces choice. The US recently tried to restrict further the entry of imports of New Zealand lamb into their domestic market. To shorten a long – and, for our diplomats, difficult – story, following a WTO ruling the US was not allowed to. The outcome is that the NZ lamb industry is now working with the US lamb industry to jointly expand the market for lamb, thus increasing the choice of meat on the American dinner table.

It hardly need be added that no country generates all the world’s new products – all the new possibilities, all the new varieties – so restricting their supply from imports is to the detriment of consumer choice. That gives one benefit of an open economy.

The second benefit arises from the choice aspect and some further factors I will discuss shortly. The result is that exports (and imports) grow faster than GDP. In the last 25 years they have grown about twice as fast. Now the basic rule – be it in economics or the TAB – is bet on fast horses. Over time economic sectors grow at different rates, some above average, some at the national average and some below. The above average growth sectors pull the rest of the economy along. Suppose you have an sector which is about a third of the economy and growing twice as fast. Of course you should back it. And that is what an open economic strategy is about – betting on a fast horses.

(Not to mention that the import sector is also growing twice as fast as the economy – you try to stop the locals demanding all the choice of the rest of the affluent world has, you try to stop them not travelling. To pay for those imports of goods and services, we need exports.)

Competitive Advantage and Inter-Industry Trade

As mentioned there are other factors as well as choice which has been driving that rapid growth of exporting, and which generate trade quite different from that based on absolute or comparative advantage. What we call ‘competitive advantage’ was happening in the nineteenth century, but we have only recently seen it significant on an international scale. Reductions in the costs of distance facilitated regional integration, the precursor of global integration.

The regional integration generated inter-regional trade on the basis of comparative advantage, that is there was regional specialisation. But it also generated a different sort of inter-regional trade, which is much less intuitive. You can see this in New Zealand by the location of the industrial breweries. Once, when the cost of carting barrels around was expensive, every reasonable sized town had one or two breweries, which provided for the local region. Today there fewer – especially of the bigger ones – and each supplies the whole country. Thus Dunedin based Speights trucks beer to Auckland consumers and Auckland breweries sell their products in the South. This is counterintuitive: imagine beer tankers passing each other on the Desert Road taking their marginally different products in opposite directions.

This sort of trade requires low costs of distance, but it also requires economies of scale in production (they are virtually prohibited in the theory which justifies comparative advantage), and it requires consumers wanting variety – of wanting choice. The differentiation is quite small. If there is no Speights the Auckland imbiber does not give up drinking beer altogether but switches to what he considers a marginally inferior product.

This regional trade of almost likes is so common we hardly think about it. But in the last fifty years a similar phenomenon as been happening internationally. Two countries may trade almost identical products. US airlines fly Airbuses, while European ones fly Boeings. Of course they are different planes, but the world would not come to an end if only one is available. (Note however economists argue that the competition between the two producers results in innovations which benefit the consumer, so that separate companies produce much the same product is not a case for amalgamation and monopoly.) Another example is that Germans buy Renaults and the French Volkswagens. Wine stores in New Zealand or any other wine producing country produce further examples.

This trade between countries of almost like products is called ‘intra-industry trade’. Internationally, it hardly existed before the second world war, but has been rapidly growing since, and today makes up about a quarter of merchandise trade. (The other quarters are oil, other primary products, and manufactures traded for primary products.)

Most rich nations participate in intra-industry trade. However among the industrial nations New Zealand is near the bottom (on some measures Australia is a little lower), more like a developing country than a rich one. In public policy, intra-industry trade is almost off our radar screen.

The economics of competitive advantage is curious. It is easy to explain why New Zealand exports meat and dairy products in terms of the natural advantages of climate and geography, but how does one explain that the world’s biggest mobile phone producer is based in Finland? (Finnish boys were too shy to speak directly to girls so they needed mobiles is one implausible explanation) What the theory of competitive advantage suggests is that very often an industry will settle in a particular location almost by accident. Once it is there it will remain in the region, providing the business continues to innovate, to maintain its competitive advantage.

Can New Zealand get into the intra-industry trade business more effectively than it has in the past
can it get a better balance between comparative advantage and competitive advantage? In my view that is much of what the government’s Growth and Innovation Strategy is about. Its vision has New Zealand exporting pharmaceuticals to Europe, IT to the US and films to Hollywood as well as importing pharmaceuticals, IT and films from them.

The strategy’s difficulty is that it is not obvious how to identify the future Nokias. Perhaps we should not even try, but instead make sure that we provide the right environment for such businesses to germinate, grow and flower. Much of this environment is the same as one would apply to comparative advantage industries: good low compliance cost governance, a quality labour force, well functioning and generous capital markets, a great environment for science technology and innovation, and the right support (and profitability) for selling overseas. But there are differences reflecting the peculiarity of the new businesses.

The Consequences of China

By way of background we need to consider the impact of China on world trade. It is likely that China is going to set the international price level for general manufactures in the future, although of course other events such as political turbulence, could invalidate that prediction. However their costs will probably not rise, because manufacturing workers can be supplied from the Chinese rural hinterland in unlimited numbers.

Why does not China – or more precisely Chinese price levels – already dominate the world? First China is only just learning to be a manufacturing exporter. Second, it has only just joined the WTO, which means it has only just got entitled to the lower tariffs associated with most favourable nation status. Moreover, soon these manufacturing tariffs will come down as a result of a successful Doha round. They may come down even further insofar as China enters into Free Trade Agreements – . not just what New Zealand is negotiating, for Australia is standing outside the door.

So whether we have just a Doha round settlement, or whether it is compounded but an Australian-China FTA (and a New Zealand-China one) the prospects for our general manufacturing industry are not optimistic. New Zealand’s strong intra-industry trade relationship – with Australia – is largely based on general manufacturing exports. At the moment we get preferential access to Australia, and they to us. As Australia’s MFN tariffs come down, as Australia negotiates other FTAs, New Zealand loses that preferences, It looks like that New Zealand’s exports of general manufactures to Australia may decrease in importance.

In part it will be replaced by food and other commodity exports to China (and the rest of Asia). Were that all to happen, we would see a considerable contraction in the manufacturing sector (an effect reinforced by reduced New Zealand tariffs as a result of the Doha round and any Free Trade Agreements we enter into). The government has a more challenging objective than to let manufacturing contract. It aims to shift the sector into the part of the market where there is not direct competition with low wage Chinese and other such manufacturers.

Typically such enterprises will depend upon high skills and high technology, and continually advancing skills and advancing technology. That is what the manufacturing component of its Growth and Innovation Strategy was about, indeed that is its ambition for all sectors. Now this presentation is not one on industrial policy – although you can see it that is integrally a response to twenty-first century globalisation. So let me then make but three comments about it.

The first is that it is clear the new industrialisation requires a different government support strategy. A high tech industry like biotechnology is quite different from general manufacturing like making paper cups. We still to get our policy head around this, but so do most other countries. It is always easier to think about the well established past than the future.

My second comment is that the new industries will be more into intra-industry trade and competitive advantage than the current ones. Given the sorts of products they are likely to be, we will be exporting them more to North America and Europe, so the Australian market share will diminish.

Third, I am unsure whether the distinctions between primary, secondary, and tertiary industry are as useful as they were once. When Fonterra uses a component of milk to make a pharmaceutical is it in the primary or secondary sector? If it sells the intellectual property in the process to another company in exchange for royalties is it in the service industry?

(There may be a more general point here. Very often international definitions ones have to be carefully adapted to New Zealand’s circumstances. We are wrong to do simple comparisons of ourselves with other economies without adjusting for circumstances.)

Globalisation Trends and their Impact on New Zealand

Trends already evident in globalisation to suggest where New Zealand might be going. Centrally, the costs of distance are likely to continue to fall, even if it only involves consolidation of known technologies and no new ones. There are a couple of caveats. First the costs of distance have been raised by the additional costs from the prevention of terrorism. The second caveat is we have to assume that liquid fuels continue to be plentiful. This is not so much the danger of a temporary shortage due to, say, terrorism, real enough though they are, but the world’s oil reserves are not unlimited, and alternatives such as bio-fuels may not be cheap when the hydrocarbon reserves run out.

What will the falling costs of distance mean? Different products face different costs of distance, and those costs change differently. At the very least New Zealand needs to distinguish between:
– the costs of moving information (broadband);
– the costs of moving people (such as tourists);
– the costs of moving high valued relatively light products (airfreight);
– the costs of moving dense products (shipping).

The implication is that the balance between different exports will change. (And we can influence their fall via our external infrastructure: the broadband, the airports and the seaports.)

There is another cost of distance which is also coming down: the cost of protection. We will see further reductions in tariffs and the removal of other interferences to trade as a result of the Doha Round. It should also eliminate dumping of agricultural surpluses including those of dairy products into third markets, although the barricades against agriculture imports in Europe, North America and Japan will not be entirely eliminated – we will have to wait for the next trade round for their full elimination.

Putting together all these effects results in the likely outcome that exports will be a great proportion of New Zealand production, and imports a greater proportion of its expenditure. Moreover, a greater proportion of exports will be of services – with tourism being supplemented by broadband services (many of which we cannot even envisage today) and receipts from royalties on intellectual property. Service exports already make up a quarter of our export revenue. In the not too distant future it may make up about a third.

More controversially, my expectation is that the contribution of the primary sector, including further processing, will decline from its current 45 percent of all export revenue to nearer a third too. This reflects my historian’s sense of the long term decline. As recently as 1965 pastoral products alone generated 95 percent of export revenue.

That means the remaining (roughly) third will come from intra-industry trade, mainly from the manufacturing sector. Mind you, that prediction is partly obscured by the ambiguity of definitions between primary and secondary industries.

In this presentation I have only had time to explore some aspects of international trade. I have not been able to report on the work I have been doing on the service industry, or on international capital flows or on international migration. I have only hinted that there is important work to be done on cultural nationalism and on the nation state and its relation to supranational organisations. You will have guessed that I am approaching these issues from both an analytic and a descriptive perspective, and a historical and contemporary one together with some account of likely future trends.

All I can hope in a limited presentation such as this is to demonstrate the Marsden Fund’s wisdom in backing research on the exciting topic of globalisation, and indicate how lucky I am that they allowed me to do that research.

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From Feudal Society to Globalized Economic Power:

The Constitutional Underpinnings of the United States Economic Performance.
Presentation to a Fulbright New Zealand Meeting, August 3 2004.

Keywords: Globalisation & Trade;

I am not going to spend a lot of time thanking Fulbright New Zealand for its generous and visionary grant. The real value is demonstrated by its influence on my thinking. Today’s lecture and my subsequent work is the gratitude.

In 1767, shortly after she came to power following a coup, Catherine the Great wrote a manifesto in which she said Russia covered a wide area (albeit much less than today). She went on that the extent was such that it ‘requires absolute power vested in the ruler’. What Catherine did not know was that on the other side of the world, another country was solving the same problem of territorial extent by focusing on the decentralisation of power rather than its centralisation.

In the middle of the eighteenth century. United States per capita production was much the same as that of Russia, although it is very difficult to measure such things. Today US material output per person it is about six times as high, and even that magnitude may not capture the difference of the quality of life in the two nations. It is not my intention to argue that the difference is solely due to the different governance arrangements, but we know it matters. Ironically, we relearned the lesson just a decade ago, when Russia shed communism. The hope had been it would flourish: sadly it has not. The most important reason for the failure was it did not have the governance on which economic success depends.

That the United States discovered such a system over 200 years earlier is astonishing, all the more so if one recalls how primitive the United States pre-revolutionary economy was by the standards of today, as I learned visiting Mount Vernon, the home of George Washington. (One of the advantages of a Fulbright fellowship is that it allows one a bit of sightseeing.) Over the years I have visited many stately homes, the surrounding land of which is farmed by modern methods. What makes Mount Vernon unusual is that piety for Washington has meant the surrounding land has been restored to what it was like when he farmed there, a task greatly helped by the preservation of his detailed instructions on farm management.

Washington’s farm preceded the agricultural revolution, so my sightseeing turned into a lesson in economic history. It reminded me of a feudal estate not unlike those I read about in nineteenth century Russian literature: it depended on serfs – indentured servants and slaves – who with animals were the main sources of power; it used pre-industrial technologies – using rotational cropping and manure rather than fertilizer to replenish the soil exhausted from earlier tobacco plantings; the farm was largely self-sufficient, producing onsite things which today would be ‘outsourced’, in the modern jargon.

Later while walking over Monticello, Thomas Jefferson’s stately home, my companion, Herman Schwartz, a political economist from the nearby University of Virginia which Jefferson founded, remarked that ‘they were closer to the medieval economy than the modern one’. Neither he nor I were insulting the United States. We were trying to capture just how long ago these events occurred, to judge them in their ancient terms and not our modern ones.

Washington and Catherine the Great are contemporaries of Captain James Cook, born within a few years of 1730. Although we think of the United States as ‘the New World’, the American Revolution occurred 150 years after the Mayflower sailed in 1620. The European settlement of the US is a couple of hundred years older than New Zealand’s. By the time of Washington, Jefferson and the Revolution, it had a well established organic settlement – and certainly not a hollow society.

A thriving organic society influences the political process, as did pre-revolutionary America. But it will tend to be conservative. There was a strong movement for a totally decentralised agrarian based society, whose individual settlements would have considerable autonomy. The compromise immediately after the Revolution was a ‘Confederation’ of thirteen separate and sovereign states. From the vantage of today, such arrangements seems absurd, but two hundred years ago the European continent was a dominated by numerous principalities, and even large states such as Britain, France and Russia did not have the reach of government control they have today.

The factors which pushed towards a United States of America began, perhaps, with the Revolutionary War in which the Americans liberated themselves for the British Crown. It was a near thing that the locals – underfed, under-equipped, underpaid, sick, demoralised and deserting – won it. The commanders of the Continental Army were notable more for vanity than competence – with Washington the notable exception. Fortunately for the Americans the British commanders were worse. There was a plan to kidnap the British commander, General Clinton, by sneaking up on him as he dozed in his New York garden which backed on the Hudson River. Washington’s aid-de-camp, Alexander Hamilton, scotched the plan with ‘it would be to our unique misfortune since the British government could not find another commander so incompetent to send in his place.’

Hamilton was an extraordinary person. By a stroke of luck Ron Chernow’s biography, a major contribution to American popular history, was published just as I arrived in America. Hamilton died at the age of 49, two hundred years ago last month, following a duel with Aaron Burr, then vice-president of the United States who was never prosecuted for the murder – once the Wild West was on America’s Atlantic seaboard. Hamilton’s early death meant he never wrote his memoirs, which disadvantaged him relative to other founding fathers such as Jefferson and James Madison, with whom he disputed the direction of US development. Chernow’s book is Hamilton’s defence.

Hamilton was born in the West Indies, twenty-five years younger than Washington. He was the illegitimate son of a Scottish merchant, his mother being unable to divorce an earlier partner. His precocity had a public subscription sending him to New York, where he took a law degree and married into high society. He read very widely, and wrote copiously – he could write a mind-boggling 5000 words in a night, presumably after a day’s work. Arguably Hamilton was the intellectual equal of – or superior to – Jefferson.

During the Revolutionary War, Hamilton, as aide-de-camp and confidential secretary to Washington, was in charge of the organisation of the Continental Army. Napoleon said an army marched on its stomach, and certainly the organisation of its supplies was a key element to its success. Washington and Hamilton were handicapped by the unwillingness of the States to provide the money for the purchase of supplies and payment of troops, in part because of the difficulties the States generally had of raising monies and the free rider effect of each State leaving the funding to the other twelve. So the Continental Army had to issue bonds and other financial instruments secured on the limited taxing power of the hardly existent United States of America. Inevitably the bonds were devalued, and there was inflation, a common accompaniment of war. Hamilton was at the time reading the works of philosopher David Hume who was also one of the earliest great economists (predating Adam Smith) especially on the theory of money. Hamilton must have been reading Hume’s theory at night, and watching its practice during the day.

After the Revolutionary War there was the possibility that the British would re-invade America. (They did so twice: in 1812 when the British Army committed the heinous crime of burning down the Library of Congress but was eventually defeated. In 1964 there was the successful invasion by the Fab Four.) It was obvious to Hamilton that to defeat a second prolonged British attack, the United States Army would need sound funding from a central government, so it was important to pay off old debts, and establish the foundations for fiscal and monetary stability.

A second military threat was that individual States in the Confederation might make war against each other, Such war might lead to Britain supporting one and France the other, but even if it did not, the costs would be high, as they were in the American Civil War over slavery, a hundred years later. Such disputes could be prevented by a strong central government, with weak States.

The possibility of inter-state feuds was not just theoretical. In 1784 there had been a commercial dispute between Maryland and Virginia over the taxing of shipping on the Potomac River between them. Madison had helped settle the matter, but the possibility of further disputes led to a convention in 1787 with the limited task of recommending revisions to the articles of confederation. Presided over by Washington with Madison attending every session and Hamilton many, including signing on behalf of New York, the convention instead submitted a constitution for a federal United States of America. It was adopted after public assemblies in most states agreed to it, although they wanted some extensions which focussed on indivdual liberty. The convention had set out a constitution which largely regulated relations between States and the federal authority. The popular assemblies proposed what eventuated as the first ten amendments (the Bill of Rights) which were adopted immediately.

The agreement to federate was a close run thing. A major contribution to the adoption of the Constitution was a set of closely argued essays explaining and defending it. The principal author of The Federalist Papers, as they are known, was Alexander Hamilton assisted by Madison and John Jay, who became the first Chief Justice of the United States. I had always promised myself I would read the essays if I ever had a long period in America. Now I know they rank among the great works of political theory – thankyou Fulbright New Zealand for the opportunity.

While I was reading about the origins of the American Constitution, on the other side of the Atlantic the Europeans were adopting their own constitution. There are interesting parallels in the contortions both sides got into in the weightings given to states. (The US solution of a House of Representatives based on population and a Senate in which each state has two votes is somewhat more elegant than the European Union resolution.) The size of the respective documents is instructive. My Penguin edition of the American Constitution comes to but 18 pages including the amendments. The propose European Constitution is 325 pages long.

Adopting the Constitution was followed by Washington becoming the first President in 1789. He appointed Hamilton as his, and the United States, first Secretary of the Treasury. Hamilton built his department into a power house. At one stage, including the Customs Service that it administered, it had more staff than the rest of the US government.

Hamilton used his position together with his interpretation of the constitution to strengthen the Federation. He consolidated fiscal revenue, having already ensure the constitution gave customs duties only to the Federal Government, thus weakening the States. He consolidated government debt and paid it off at nominal value – which did not make him popular among those who had sold their debt issued during the war for as little as 15 cents in the dollar, in the belief the bonds would never be redeemed. He arranged the assumption of the States’ debts by the central government, so that States would not have to raise revenue to redeem it. (The deal involved him agreeing to the Federal capital being located on the Potomac, rather than New York.) He used his customs position – the main source of revenue – to strengthen naval fortifications. He set up the Bank of America. He promoted manufacturing, not only by the high customs tariff, but encouraged investment in business.

Sadly, Hamilton fell out with Madison and Jefferson who thought he was too centralist. Washington tended to back his Treasury Secretary – perhaps his war experience also persuaded him of the importance of central fiscal management too. (Neither Madison and Jefferson fought in the Revolutionary War.) The fallout is a complex one with many dimensions. New York city based Hamilton saw the need for a sound monetary system whereas his indebted opponents from rural Virginia, were far more sceptical of money lenders. Moreover Hamilton was an Anglophile whereas they were Francophiles. I am shortening the story, but Hamilton’s admiration of late eighteenth century Britain, which he never visited, reminds us that one can think of a country’s political system as corrupt, but still admire the vigour of its industry, the vitality of its society and the achievements of its intellectual life.

I am going to stop the Hamilton story here, except to mention some of the tributes. Article II of the Constitution states that no one shall be eligible to the Office of President ‘except a natural born Citizen or a Citizen of the United State at the time of the Adoption of this Constitution’. The now obsolete second provision was surely a recognition of the talented thirty-two year old. A second tribute is Hamilton’s portrait on the ten dollar note – a nice recognition of the man who did so much to give the US a sound currency. The third is that in the entrance hall of Monticello, Jefferson’s home there are busts of Voltaire, the French economist Turgot, and of Hamilton. In death his old enemy recognised the man’s greatness. The fourth tribute is Chernow’s biography, a solid read of 700 pages, which I recommended to anyone who enjoys good political biography – and, if you like a little spice with the salt of politics, there is at least one sex scandal.

The resulting governance of the United States is a complex mix of centralisation and decentralisation. The ‘Commerce Clause’ of the Constitution authorises Congress to remove barriers to trade, and prevents states from impairing the enforcement of contracts; the ‘Takings Clause’ forbids the expropriation of private property without compensation. Thus economic relations are largely left to reciprocal exchange based on market transactions, without restrictions of flows across state boundaries, while ensuring there is a rigorous rule of law and a sound fiscal and monetary system. This laid the platform for American capitalism and economic growth.

Economists Alberto Alesina and Enrico Spoloare, whom I hope to meet in Boston during the second leg of my Fulbright visitorship later in the year, argue in their The Size of Nations that middle size nations open to international commerce (that includes New Zealand) perform economically more effectively that larger ones. While there may be economies of size in some economic production processes which are reaped by large nations they are offset by diseconomies of governance. Large nations have difficulty managing the diversities in their population, while smaller economies offset their economic size disadvantage through international trade.

The counter-example is the US, which is both large and economically successful. Alesina and Spoloare argue that this exception arises because the US is organised in an economically decentralised way, a possibility which Catherine the Great overlooked. But, as I shall explain shortly, there may be disadvantages of governance if states have no significant taxing power.

This analysis sheds light on globalisation, which I am studying with Marsden Research Funding. While the topic is of popular contemporary interest, scholars see significant globalisation beginning in the nineteenth century, not long after the events I have just related. It began as a process of regional economies unifying into national economies. US regionalisation is a particularly interesting not only because of its scope, but because of the vast quantities of scholarship on it. Fulbright New Zealand gave me the opportunity to examine the regionalisation process on the spot, as it were.

The advantage of such visits is that it changes one’s perceptions. During the first leg I realised that as well as thinking about this regionalisation as step on the way to globalisation, one could see the US as a sort of mini-globalisation in its own right (if one is allowed to think of anything about the US as ‘mini’).

Consider a world of only America – more like it was in its nineteenth century isolationist phase. The globalised world that it encapsulates is one in which there is a central authority equivalent to the Federal Government, and relatively weak states. They would have no military power, little taxing power, and little control over commerce across their borders. Yet the central government would not have unlimited power, being restrained both by the courts and by an elected congress, while economic transactions would be regulated by the market. There are some useful lessons from such an idealisation, even if the world will not turn out like it.

The first is that whatever the drivers of the US economic performance – governance arrangements were only one of them – there is far less economic inequality between the states of America, than the states of the world. While there is considerable inequality within America as a whole, the differences between State are remarkably small, even by comparison with the states of Europe. It rises not only because there is more freedom of trade between the American States than generally, and the freedom of capital flows. There is also freedom of population movement. It may never have occurred to America’s founding fathers that they could have restricted internal migration but, that in any case they did not has meant that American labour could shift to where wages were higher, reducing the inequality between states.

This conclusion has a profound implication for a globalised world, if as seems likely in the foreseeable future, there are continued restrictions on migration. The degree to which international trade and capital flows can moderate inequality may be a matter of dispute among economists, but without a high degree of labour mobility there will be a higher inequality between nations, although not necessarily within each nation. This issue is now high on my ‘for further investigation’ research list. Fortunately, one of the people I shall be working with in Boston on the second leg is economist Jeffrey Williamson, a major contributor to research on globalisation, who has recently focussed on international migration.

This idealised characterisation of a globalised America also helps us to understand better the ‘convergence’ thesis. It has two elements. One is that globalisation will force policy convergence on nation-states so that many policies will become increasingly similar. I shant follow this issue here, because the American experience does not shed much light upon it, as their States do not have a lot of policy freedom because of their limited powers of taxation.

More pertinent is the issue of cultural convergence, the possibility that globalisation will result in the cultures of the world converging to a single global culture. The short answer that it has not happened in America, where there remains cultural differences by region, despite 200 hundred years of internal globalisation, and over 80 years of restrictions on external migration. The differences cannot be explained simply by the geography and history of the region, but require the addition of the culture of the people who came there. So America suggests the most extreme version of the cultural convergence thesis – that we shall all end up the same – does not hold.

I have compared the experience of American with that of Europe. Such comparisons are extremely useful for a social scientist, and indeed the European Union – which might be thought of as the United States of Europe delayed 150 years by the inertia of history – offers an alternative model of the globalised world with a weaker central government and more power held by nation-states, albeit it again with no restrictions on cross-border transfers of goods, capital and labour. I intend to sharpen this comparison as my Marsden research progresses.

An important difference between the two governance arrangements is that the American constitution, as a result of its British heritage, has a strong common law element, while the European one is more code base as befits a the European Continent’s heritage. That partly explains the difference in the size of the two constitutions, and how Maddison, Hamilton and all could write a 400 page treatise to expound the principles of a – at that time – 10 page document.

The merit of common law – that is disciplined judge-made law – is that it enables adaption to new circumstances. There has been some 17 further amendments to the constitution since the first 10 of the Bill of Rights, but they have been mainly procedural. I doubt they would have disturbed Hamilton – excepting the eighteenth which proscribed alcohol, it being the only constitutional amendment to restrict freedom, and was repealed by the twenty-first. (Hamilton got into a bit of a tangle by imposing excise duties on whiskey). Perhaps Hamilton of would have mused over the sixteenth amendment which allowed income taxation, although Hamilton, Secretary of the Treasury, would have been much relieved.

That there have been so few non-procedural amendments is both a tribute to the Founders and to the ability of the American courts to interpret the Constitution for current conditions. (Even Hamilton did this, extending the scope of government business by the phrase that Congress had power to ‘provide for the … general welfare of the United States’.) Even so, two hundred years later we may ask whether the Constitution and subsequent arrangements are handicapping the United States to some extent.

I will not pursue, being outside my expertise, whether a constitution founded on the premise of defending the United States from invasion has the right checks and balances now the country has a global military reach. An alternative approach is implicit in the handling of the international economy, where the Constitution provides that it is Congress which has the power ‘to regulate Commerce with foreign Nations’.

In practice Congress would find it exceedingly difficult to exercise that power directly, so it delegates it to the President, binding itself that it will only accept or reject what the Executive negotiates, and not amend it. The result is the Executive has to negotiate any commercial treaty – say a free trade agreement – with members of Congress as well as with the potential trading partner. I was fortunate while in Washington to observe Robert Zoellick, the President’s Ambassador for Trade Negotiations (parallel to our Minister for Overseas Trade) interacting with members of the House of Representatives Agricultural Committee. He seemed to know each and their congressional district intimately, and his responses to their questions was almost a public negotiation.

When an American action under the international trading rules they helped create is challenged, they vigorously pursue their position up to the highest tribunal. For the record up to May 2004 they had won 24 and lost 24 such cases, although it looks as though they are about to lose the Brazilian case that their international dumping of cotton has broken international trading agreements to the detriment of other producers. Zoellick robustly rejects the Brazilian case, but if, as seems likely, the final tribunal rules against the US, the government will immediately cave in, telling the cotton farmers and their congressional representatives that America must obey international commercial law.

There are two lessons from this. The US is scrupulous about conforming to international commercial law, once it is determined. That is both the heritage from their Constitution, and the practical insight that even when business laws are not perfect it is wise to conform at least to the letter of them, for otherwise there is only the law of the jungle which – as we have seen in Russia – does not work well for business.

The second lesson is that Zoellick was relating to the congressmen individually, not to parties or their party leaders. Indeed it was hard to tell who belonged to which party in the select committee (other than by the seating arrangements). Unlike the New Zealand prime minister who commands Parliament, the American president may have a majority of his party in both the House and the Senate (as occurs with George Bush), but he does not have a governing majority. There is no certainty that representatives from the President’s party will vote for the his legislation. Instead for each bill, he must construct a majority from the individual representatives.

The consequences are evident in the two countries’ tax legislation. In New Zealand, the Minister of Finance backed by the Prime Minister, submits legislation to the parliament and relies on the governing majority in the House to pass the bill. The proposals may be scrutinised, and submissions may lead to changes in the legislation, but the changes only occur with the approval of the Prime Minister and relevant Minister.

In the US with the Founding Father’s separation of the executive from the legislature, and their belief that the legislators would be independent souls who, in the words of Edmund Burke, only owe their constituents their industry and judgement, there is no concept of party in legislative deliberations as New Zealanders know it. Any legislation requires the building up of a coalition of individual representatives, many of who will demand concessions for their vote.

Such concessions may make excellent political sense but they usually make little sense fiscal or economic sense, and the resulting American taxation regimen is a chaotic tangle of exemptions and concessions. When American economists complain about the inefficiency of their tax system, they are referring to a far less satisfactory one than that we have in New Zealand today, or even the one before the reforms under Muldoon.

Not only is the American tax system inefficient, but without party government it is harder to maintain fiscal discipline. The New Zealand fiscal system operates on the basis of a Minister of Finance who is a fiscal conservative, backed (hopefully) by an as committed Prime Minister. But just about everyone else is a fiscal liberal demanding increased spending and tax cuts. Its government (internal) deficit is always under pressure. Washington and Hamilton knew the problem, but it is compounded in the US by the executive not commanding parliament.

The recent willingness of the US Congress to abandon fiscal discipline is discomforting. Because the US issues the currency of international choice, the US dollar, the American deficit is easier to finance in the short and medium run. However in the long run a large American deficit pouring its dollars into the word economy will boost interest rates and inflation, and undermine confidence in the greenback.

I am astonished that American conservatives seem to have abandoned fiscal discipline as a prudent government goal. The policy stances along the US political spectrum seem to have flipped over, since it is the liberals who seem more concerned about the deficit. It was Bill Clinton who reined in the US internal deficit which Ronald Reagan’s administration triggered (although George Bush senior did make some headway). One of the conservative proposals – I do not know how serious it is – is to replace Hamilton on the ten dollar bill with Reagan. That would be to replace America’s first fiscal conservative with America’s most profligate fiscal liberal (the current administration possibly excluded).

The different constitutional arrangements among European countries results in their having more efficient tax gathering systems. In his book Growing Public: Social Spending and Economic Growth Since the Eighteenth Century, the American economic historian Peter Lindert points out that Europeans are able to raise higher taxes to fund a more comprehensive welfare state than the US. He concludes that their ‘net social costs of transfers, and the taxes that finance them, are essentially zero. They do not bring the GDP costs that much of the Anglo-American literature has imagined. … high budget democracies show more care in choosing the design of taxes and transfers so as to avoid compromising growth. … Broad universalism in taxes and entitlements fosters growth better than the low-budget countries’ preferences for strict means testing and complicated tax compromises.’

America’s constitutional arrangements inhibit the development of the welfare state which other rich countries think normal. This is evident in the different arrangements over the funding and supply of health care. The American 45 percent share of public funding of total health spending (including aspirins and alternative medicines) is uniquely low among the rich countries, where typically the public share is in excess of 75 percent. Public health spending is so far off the American radar screen that Lindert does not analyse it, despite elsewhere the public health system being at the core of the welfare state: a kind of ‘Warehouse’, where everyone gets a bargain.

The US has been unable to persuade any other rich country to imitate its highly privatised health care system, in part because it is so inefficient. The US undoubtedly has some of the best medical treatment centres in the world and spends more per capita than any other country on health care. But the return on the spending is not great so that, for instance, Americans have average longevity among rich nations, despite all the additional expenditure. A privatised system has little incentive to push health promotion. Moreover, according to the law of diminishing returns, uneven coverage means that there is insufficient treatment of the poor where there are big gains, and relative over-expenditure on the rich, where health gains will be smaller.

The problems of the American health system are parallelled in its core education. Both are based on decentralised supply and finance, although the principle is applied in different ways. In the case of health care it is primarily a private insurance-based contributory system. Pre-tertiary education involves considerable local control, but that undermines any imposition of national standards, and the public funding – typically from county property taxes – tends to be inadequate. Americans grumbled to me about primary and secondary education – although so do New Zealanders: grumbling about education may be one of the marks of civilisation.

But Lindert’s book raises wider implications. He observes that while at the start of the twentieth century, the US was one of the world leaders in education, by the end of the twentieth century the international ranking of American students had fallen. In the latest Program for International Student Assessment (PISA) on 15 year olds, America was 14th out of 31 countries on reading scores, 18th on mathematics and 15th on science. (New Zealand was 3rd, 3rd, and 5th respectively.)

My tentative explanation – I hope to do more investigation during the second leg – is the deteriorating relative performance of the American education system parallels that of the health system. The US system is too decentralised. While parental involvement and a degree of local autonomy is important – New Zealand’s Tomorrow’s Schools was a step forward – centralised funding and national standards are needed. Because the Constitution in general, and Hamilton in particular, stripped the ability of States to raise significant revenue it has not been possible for them, largely dependent upon property and low sales taxes, to fund their schools adequately and equitably. While undergraduate programs in the tertiary sector often get bogged down making up for the failures of the secondary system, the US graduate programs are among the best in the world. That is because they are less dependent upon local finance and more responsive to international standards, at which point American-style supply and delivery come into their own.

While the inefficiency of the American health system is a burden on the economy which, arguably, may be offset by the vigour of American capitalism, the relatively weak performance of the US education system must be an even greater worry, insofar as it compromises the quality – and hence the productivity – of the workforce, and the ability of the economy to adopt the new technologies central to economic growth. Add the US government deficit undermining the integrity of the its dollar, and we may see a relatively diminished US economy in a globalising world.

The American constitution of 1787 is over 200 hundred years old. It was created in a pre-capitalist world, a world before Adam Smith’s Wealth of Nations was familiar, and a world without significant public social spending, for as Peter Lindert notes, there was little before the twentieth century. Its constitution has served America well in the past, it may serve it less well in the future.

On the other hand, we should never underestimate the ability of American capitalism to renew itself. That vigour and vitality came from that curious but admirable blend of Jeffersonian independence and Hamiltonian discipline. We can learn much from the combination. Only time will tell whether the synthesis will continue to be effective in a globalising world..

So what can we learn about future possible economic, political and social configurations of a globalised word? We can dismiss Catherine the Great’s vision of rule by a benevolent and enlightened autocrat. As she said herself, the problem is ‘delay occasioned by the great distances’, and effective distance has diminished greatly in the past two hundred years.

Hamilton’s vision may seem more possible: a world with a strong central executive checked by a robust democratic legislature and courts which enforce the constitution, a world in which economic transactions are largely regulated by the market. The difficulty with his vision is that it would be a world of weak nation-states.

As the experience of the European Union shows, it seems unlikely that nation-states will abandon their sovereignty to the degree that the states of the US did. There may be considerable policy convergence on matters of international (cross-border) commercial intercourse but more policy freedom within borders, especially given that nation-states are likely to maintain their powers to tax, not least because of the desire to promote social spending. However, taxation also funds military and other means of state repression and aggression.

Sovereignty and social spending probably also means that there will be restrictions on cross-border movements of people, even though national borders are porous to goods and services and capital. That will mean considerably more economic inequality between nation-states than is acceptable to idealists. (I am not sure yet what it means for inequality within nations.) Migration restrictions rule out the European Union model for a globalised world, in which nation-states maintain considerable powers, but allow people mobility.

At a later stage in the Marsden project I hope to look at the European arrangements as closely as Fulbright New Zealand has allowed me to look at the United States ones. I am most fortunate that they have enabled me to learn so much, and to be able to share what I learned with you.

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Economics for the Children

Paper for the AGM of the Auckland Child Poverty Action Group, 19 July, 2004

Keywords: Social Policy;

The government has at last attempted to address child poverty. And not a year too soon, for 2004 is also the 30th anniversary of the major research paper, Poverty in New Zealand which pointed out that poverty was mainly in households with children. That one main fact about poverty in New Zealand, often gets lost behind a myriad of minor facts. The consequence is that attempts to reduce poverty are at best inefficient, and at worst ineffective. That primary fact is that a substantial majority of the poor are children and their parents and we need to target on their needs.

This predominance of children and those who care for them is independent of the choice of poverty line. At least three-quarters of the poor are children and their parents. It is more than four-fifths if we adjust for the more expensive housing that families with children face. Even those figures of 75 percent and 80 percent are under-estimates, since some children’s households have adults additional to their parents.

Poor households are not just Maori or Pacific Island. Both ethnic groups have a higher proportion of their people in poverty, but the majority of the poor are Pakeha. In one study, Suzie Ballantyne and I found 58.5 percent of all poor households were described as ‘Pakeha’.

The poor households are not just single parent households. They too are more likely to be poor. But the majority of the poor are in two parent households. In our study 65.8 percent of households had two parents.

The poor households are not just dependent on social security benefits. The majority of poor households have labour earnings.

The poor households are not just in state houses or even renting their households. Many poor households are paying off a mortgage. The study found 52.3 percent of households owning their homes with or without a mortgage. (This was after adjustment for the costs of housing, so the figure allows for those who own their homes without mortgage having lower outgoings.)

Additionally while children and their parents who are in fair or poor health are more likely to be in the lowest income households, the majority in those households are in good health.

This research does not say that the typical poor households is pakeha, with two adults, living in their mortgaged house depending on wages, in good health. There is no typical poor household – with one exception. The typical poor household has children.

We have known this for thirty years. In the three decades children have been born, lived in poverty, become taxpayers, and become parents themselves. Probably in that time children have been through nine million years of living below the poverty line. At last we are taking their plight seriously.

Not all of us. After the Budget there were politicians who said that the family assistance package was an electoral bribe. If it was a bribe, it was an inefficient one, because children dont vote. A far more efficient bribe in terms of votes per dollar comes from reducing income taxes in the middle range, as some political parties have noticed.

So was the government incompetent, bribing the wrong people? I suggest a fairer judgement is that it was not seeking the efficiency of narrow political calculations but was looking to political justice: to the development of a New Zealand community in which everyone can belong to and participate in, as the 1972 Royal Commission on Social Security enjoined upon us. And that ‘everyone’ includes children. It will be a sad day when social justice objectives are classified as bribery.

Some will emphasise the economic efficiency gains from ensuring children are not in poverty, even if there are not political bribery gains. They say that children out of poverty are less likely to be sick, less likely to die, less likely to experience the stress of family breakdown, less likely to get into crime and other sociably disruptive activities. These children in economically comfortable families are more likely to get a better education and life career. That is all probably true, although there is not enough research evidence for us to be sure. (Why is there not enough evidence? Because we would rather run social policy based on prejudice than evidence, so we have lamentably failed to do the research. That is why it has been possible to ignore that ‘poverty (mainly) equals children’ equation for thirty years.)

But even were there no economic and health benefits from eliminating child poverty, there would remain a strong case in justice. A society which ignores economic justice – as New Zealand has largely done over most of the last two decades – eventually faces the danger of a lack of social cohesion which will result in social and economic failure. Most people get a rough sort of economic justice from the raw market – although even we have to intervene for some of them. Children get no justice from the raw market, there is no trickle down for them. That is why we have to take positive action to protect and promote our children, the sort of action which was in the 2004 Budget.

However, as much as we may applaud the 2004 Budget’s concern for children in poverty, it is deserving of a critical review. Sadly however, some of the critics have been quite misleading. Trying to deal with the false prophets would make this a very messy and long paper, so I shall to focus on the budget proposals as they are.

I do not criticise the government for its parsimony, at least this budget addressed a problem which earlier ones ignored. There was not a lot of fiscal room for increases in family assistance. In any year the government has about an extra one billion dollars to spend from increases in revenue from economic growth and from fiscal drag (the effect of tax-payers moving up into higher tax brackets). About half of that amount is used for the political priorities of educational and health services, and some more is used for such things as industry assistance and the Auckland motorway system. So without a tax increase there is not a lot of money to spend on family assistance.

You may wonder whether the government surplus could be raided. A figure of around $6b which is widely quoted – it is called OBERAC – is an accounting measure which does not tell us how much the government has to spend. Much of that surplus is used for funding investment in schools, hospitals, roads, government trading enterprises, and for student loans, so it cant be spent on something else.

Why not, you may ask, have the government borrowing to fund such investments and using the freed-up cash for children? Leaving aside the prudential reasons for funding from internal sources (for no business or household funds its investment entirely by borrowing), and leaving aside that the measure would be a step on the way to privatisation of education, health and the government trading enterprises, the extra pressure on the economy from this extra borrowing would be unhealthy, because it would push up the exchange rate, screw the export sector, and stagnate the economy, as well as adding to the debt servicing burden for children when they grow up.

I have had to go through these macroeconomic arguments quickly – I have written about them extensively elsewhere – and they are complicated. The point is that they must be taken into consideration. If they are not, the resulting policies will do considerable damage to the economy. It is irresponsible to use the OBERAC figure, without understanding it or the implications of spending money that is already spent or is not there.

So the amount of money available for the family assistance package was relatively limited. That was one reason the government decided to phase it in over three years – to make the small amount appear bigger by the end.

There was a second reason for the phasing. The government was constrained by the implementation times. Institutional logistics means that there may be a considerable lag between a policy announcement and its execution.

There is also a lag from the decision to pursue a policy to its announcement. To outsiders, a year’s preparation may seem sufficient to institute a major policy reform such as the child assistance package that the government promised a year ago, However practical logistics mean there was only time to put in what amounts – broadly – to increasing existing levels of assistance, rather than a radical reform. Particularly important was that there was not time to institute a new delivery system. Apparently a major consideration was that officials thought, and the government concurred, that radical innovations take time to implement safely. Rapid implementation of untested systems risks an administrative foul up or overlooking difficult or special cases.

Unfortunately the system which the 2004 measures were improving was not particularly coherent. The savage cuts to the welfare state of the early 1990s has led to a plethora of ad hoc one-off measures to moderate their most brutal impacts. So the post-2004 system lacks this coherence too.

To the tightness of funding and the shortness of time for full reconstruction was added the requirement that no family should appear to be worse off. The government did not want its friends or its enemies identifying even one household which would be pointed to as suffering from the reform, no matter how many people would benefit. There is a ‘grandmothering’, in which anyone who is made worse off retains their previous rights until their situation changes for the better, but it was hardly worth doing in the sort of hurried incrementalist circumstances that pertained in this case. Without it, the package became very complicated. In effect everybody in receipt of family assistance today had a veto over the package, and the inevitable outcome was a clumsy scheme.

The incrementalism is evident in the erratic pattern of the effective marginal tax rates. I shall return to their high levels shortly, but the point I want to make now is that given the constraints of only a little funding phased in over a period, of a short development lead time, and the no-one worse off requirement, there is not going to be an elegant coherent reform.

In drawing attention to these limitations I do not join the churlish who have complained for years the government has done little for children, and when the government does something they claim it is not enough, or that it omits one of their pet schemes. Of course it is not enough. But let us credit the government for doing something, even if we believe the government can do better – something which the government itself believes too. The issue is how to get it to do better,

The next major assistance package needs a longer lead time. I would like the government to tell its advisers that they are planning on a major reform of family assistance in the 2006 or 2007 budget, and they are to start work on it right now. Over the next year they are to do a complete review of the current system, with the aim to replace it with something more effective. My guess is that the new package will have some of the following characteristics.

At its centre will be a new delivery mechanism probably through the tax system. The current tax system assumes we are all lone adults, and bolts on children as an afterthought. The option is either that children are treated separately, which is probably not practical if we aim to supplement according to the household income, or that the responsible adult or adults will have a tax code which will reflect their responsibilities to children. Any new child oriented tax system will probably have some negative income tax or tax credit, so that low earning households will take home more than they earn. I know the Minister of Finance favours a universal social security benefit – he tried to introduce it in 1990 when he was Minister of Social Welfare. The aim will be to develop a seamless transition between the benefit and earning.

To jump from the current incoherent system will require some grandmothering.

It is unlikely the new system will not be based upon a universal family benefit. Ideally it should, but that very expensive if it is to eliminate child poverty. Today, universality cannot address the needs of poor children. Unfortunately, selectivity requires the bleeding out of assistance, and that raises effective marginal tax rates (EMTRs). I have just criticised the existing scheme because of the erratic levels. I now need to say something about why they will be high.

There is a vigorous campaign to reduce income tax rates on the rich. The argument that it will increase economic efficiency is not very compelling. Such research there is on the impact of tax levels on the economy is inconclusive or flawed. One might point out that the major tax cuts of 1988 were followed by six years of falling per capita production. But to say stagnation this is due to the tax cuts would be the classic fallacy of ‘post hoc ergo prompter hoc’: just because event B follows event A it does not mean A caused B. Yet that logic is typical of those who advocate tax cuts for themselves.

Arguing for lower taxes is arguing that the beneficiaries of the cut should get a greater share of national income and expenditure. They are understandably silent as to who is to get a lesser share. The sort of tax cuts being proposed by the most extreme, say to halve the maximum rate of 20 percent, will cause widespread cuts to government spending, to social security benefits and family assistance, and increased privatisation including, probably, of education and health (plus, probably, higher GST). The OBERAC surplus is as inaccessible to the rich for their tax cuts as it si to the poor for benefit hikes.

What the tax-cutters are offering is a quite different New Zealand from the one we have today. This being a democracy one welcomes such debates. The pro-rich are entitled to argue the case for reducing taxes on themselves and cutting government spending and the incomes of others. But let us debate it honestly with full disclosure of the downsides.

One of the less comfortable sides of this debate is that while there is a considerable outcry by the rich of the dreadful effects they claim that a 39 percent tax rate imposed upon them, they are almost silent on the effects of the very high effective marginal tax rates faced by those on low incomes. Frequently those rates are more than double the 39 percent the rich face. In some cases they are 100 percent, so all additional income earned is taxed and abated away.

There was some outcry from the pro-poor about these high effective marginal tax rates on the poor following the 2004 budget, although they existed before then. The bad news is high rates are inherent in any system which offers significant support to the poorest. There is a simple economic theorem which says that if the guaranteed minimum income is set at X percent of the average income, then the average effective marginal tax rate has to be X percent too. Suppose then GMI was 60 percent of average income, then the average income tax rate is going to have to be 60 percent. Since the top rate on the rich is 39 percent somewhere someone is going to have to be taxed at above 60 percent.

Consider the proposition that the maximum income tax rate should be 20 percent: that means the highest level of the Guaranteed Minimum Income is also not more than 20 percent of average income. This is not just theoretical. Recall that the income tax cuts on the rich in 1988 were partly funded by raising taxes on the poor and middle incomes by reducing their exemptions and increasing GST, but that still left a fiscal deficit which was initially bridged by the funds from privatisation and then, in 1991, there were savage benefit and government expenditure cuts.

The implication is that if we want to offer people a decent minimum standard of living, somewhere in the system there is going to have to be high effective marginal tax rates. The high EMTRs reflect this. Of course, were we to raise taxes on the rich the high EMTRs on the poor could come down. Those who object to the high EMTRs are either arguing for higher general levels of taxation or lower benefit levels. The pro-benefit lobby needs to be cautious over their objection to high EMTRs – they may build up a political dynamic which resolves their concerns by cutting the income of beneficiaries.

I have found only one resolution to the high EMTR problem (other than raising tax levels generally). Suppose that some people’s guaranteed minimum income was zero. That would bring down the average GMI for the nation as a whole and the average tax rate could also be lowered.

Now it may seem harsh to set some people’s benefit GMI at zero, but that was the way that the traditional welfare state worked. Most people had a zero entitlement. Instead they were guaranteed a job, for that is what full employment meant. With the ending of full employment that particular strategy has become less effective because there are people on the unemployment benefit. We have been struggling with that problem ever since. The solution has been 100 percent EMTRs on the unemployed – once they get a job they lose the benefit, although that is easier said than done.

I do not propose to further pursue this policy problem here, because there is an even more pertinent one for those concerned with child poverty, a problem so large and difficult that we have been unable to find any public consensus on its resolution.

In the traditional welfare state a substantial proportion of working age adults were neither entitled to a minimum income nor were they expected to get an income earning job. Typically they were the wives of wage and salary earners, who stayed home looking after children and doing housework, neither of which generate market income and therefore is not taxed. We treat such activities as private transactions between the earner and the rest of the household.

That situation has broken down. Many people live by themselves or hire home help, so popular nostrums such as income splitting would compound the injustices. More complicating is that many of the women whose mothers stayed at home go out to work, even when they have children, and they still do the housework.

Meanwhile there is a sense in that many of the mothers who were once supported by husbands are now supported by the state through the DPB. My point here is not to judge whether this is right or wrong, but to indicate there has been a shift in the burden of welfare from the private household to the state and that this has complicated the funding and structure of the welfare state. It also raises the question why should some caring parents get state support and others get only private support?

Add further complications of people who chose to work only part-time, while others are often in particular employment phases for short times so their income fluctuates, and we have a world which is very different from that upon which the traditional welfare state was based.

How are we to build all this into social policy and family assistance? I am not going to answer this, because it requires some social consensus about when a mother or spouse should work and when she (or he) should not. No consensus exists. Without it we hover between income distributional policy being based on a one income family or it being based on a two income family.

Deciding one way or the other is not as straight forward as one might think. For instance, suppose we decided policy should be predicated on a one income household. The logic is then that the benefit structure should also be based on one income families, which would involves a reduction in benefit levels. But lots of women spouses go out to work, so they tell us, because a one income household does not generate a high enough standard of living. So should we not base the policy on a two income household? In which case what should we do about spouses who do not go out to work.

These are not just theoretical issues, They were at the heart of the workings of the family assistance package. My understanding is that it was concluded that it was not possible to find a socially acceptable compromise. The resulting incrementalism (‘ muddle on through’) was a continuation of a family assistance system which is clumsy and almost certainly inefficient in terms of reducing poverty relative to the revenue that was available.

I have had to deal with this and other issues rather superficially because of time limitations. They are really difficulty problems. Those of us who work in the area often despair at finding any practical resolution to them. Finding one which might be an acceptable social consensus is even more impossible.

The best I have been able to do is a social policy which assumes every working age adult is an earner, although some may chose not to take up that option. The approach goes on that child care, whether it is at home or in a formal institution, should be an earning activity, to which the state should contribute, at least by treating it as a cost of employment and allowing paid child care to be tax deductable (up to a certain level reflecting the situation of the children). My thinking is a long way from an implementable policy, but it has the advantage of explaining why child poverty is a major problem in society, and it is seamless between one and two adult households and child care.

In setting out a simplified account of some of the issues which face those who would end child policy, I am saying no more than to every complex policy problem there is a simple, direct, easily understood solution – which does not work. The child poverty elimination movement has to eschew such solutions, but what can it do usefully? Here is my list of its salient responsibilities.

1. The Movement can be a public advocate for children in economically unsatisfactory circumstances. Children cannot advocate for themselves, nor can they pay others to advocate on their behalf.

2. The Movement can press the government to keep its promises, and insist other political parties make promises to reduce and eliminate child poverty. In particular it should demand of this government that not later than 2007 there should be a major reform of levels and delivery of family assistance. An incoming government would find it harder to meet the deadline, so the realistic demand is that the opposition parties should be committed to the reform not later than the 2008 election.

3. The Movement should identify specific measures which would alleviate distress in children, especially those which are not amenable to treatment by a family assistance package. The Auckland CPAG has an excellent record of doing this in the health area.

4. Each year the Movement should publish a set of priorities which the government can take into account during its budget round. The priorities should be realistic in the sense of keeping with the general budget policy framework.

5. The Movement should actively draw attention to policies which are to the detriment of children, including to those policies for which the downsides on children are not mentioned. This applies to both government and opposition policies, and to others promoted by lobby groups and debated in the general community.

6. Where possible the Movement should commission, endorse, and promote high quality empirical research and closely argued papers whose aim is to develop a public consensus on principles that have to underlie an family assistance framework. It should encourage public debate upon them.

7. The Movement also needs to maintain a capacity to challenge those policy proposals, sometimes even promoted by people of goodwill towards children, which are of the simple, direct, easily understood, variety and which do not work

Despite brevity of this list, it represents a big task. I must say, however, that it is a task which the Auckland CPAG already has a creditable record in pursuing. Had you not persisted over the years it is doubtful, that the 2004 budget would have been so forthcoming. Perhaps there would have been tax cuts for the rich instead.

After all the rich can advocate tax cuts for themselves and pay others to do speak on their behalf. Children can not. Someone should. One welcomes the CPAG saying ‘we should’. I hope many other will join you. It would be dreadful if in another 30 years – and another nine million years of child poverty – the problem of economic stress by children are still there in 2037.

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Leadership and Nationbuilding

Revised version of a paper presented at a conference, July 2004.
Keywords: Political Economy & History;

Introduction

The Nationbuilders described a particular phase in New Zealand’s economic and political history, between 1932 when Gordon Coates became Minister of Finance and the election of the Labour Government in 1984. It follows a group of (mainly) men embarking upon a strategy of developing an independent nation with its own economy and culture but engaging with the rest of the world. The story is told through their biographies, but it could have been told through historical sequence or policy themes, or with more biographies had there been the space.

Their nationbuilding strategy came out of the distancing of colonial New Zealand from imperial Britain, together with the impact of the two world wars and, crucially, the Great Depression. Importantly for this chapter. it began in a period when the forces driving economic globalisation – the integration of economies – were relatively quiescent. Conditions are very different today. Have the mid-century nationbuilders anything to tell us about the challenge that nationbuilders face today? (Throughout this chapter, ‘mid-century’ refers to the middle of the twentieth century.)

Briefly, while mid-century nationbuilding was a solution to a problem then facing New Zealand, the style of leadership the nationbuilders of that era remains relevant today, if not more so.

Leadership, Policy and Problem Solving

Policy is essential a problem solving exercise: the better the precise identification of the problem, the analysis of the options, and the choosing of the best option (with clarity as what is ‘best’) the more successful the policy exercise.

This approach has an interesting implication for the significance of the mid-century nationbuilders when we consider the task faced by the nationbuilders of this century. From one perspective we can say the time of the earlier nationbuilders has passed, and they have nothing to say to current generations. On the other hand, we can think of them as problem solvers whose problem solving strategies may be still relevant.

Problem solving is typically a team effort, although on occasions the leader may pace the floor, chew over the possibilities, and then make the ultimate decision. We are prone to portray our politicians this way, but usually there is some consultation in which a variety of other people are involved, but of which there is little record. (There will be more today because of the more formal policy process. Even so, the informal consultation is still likely to be unrecorded.) Thus the precious recollection of Gordon Coates’ decision style by Bill Sutch, who worked in his ‘thinktank’ from 1933 to 1935:

“[He] went right round the table [of those in the ‘thinktank’]. He would ask everybody’s view and the hour would be getting late – it might be 10 o’clock at night – and he’d say ‘All right gentlemen, we’ll have a cup of tea’. And up would come from Bellamys a tray with a silver teapot and we’d have a cup of tea. A quarter of an hour later we’d go on with the discussion and about 11 o’clock he would say, ‘All right, gentlemen, I’ve heard enough. I know what we’re going to do. These are the decisions.’ He would make a few notes on paper, and that was it. He’d make a decision and he’d say, ‘All right, go away, draft the legislation.’ And then he would go down to Mr Forbes who was Prime Minister, and say, ‘This is what the Government’s going to do.”
(An account based on cabinet papers or from the recollections of cabinet ministers is likely to entirely miss this process, giving the impression that Coates did it all himself.)

How Peter Fraser made his decisions is not as well recorded. We know, from the memoirs of Bernard Ashwin (and Alastair McIntosh who does not have a chapter in The Nationbuilders but could have had), that Fraser was in frequent one-to-one dialogue with senior government officials in which he mulled things over. Ashwin records
“I saw him almost every day during the war. For some reason he liked me and often asked me to call to see him. On my way home from work – usually around midnight – we would sit and talk through the early hours of the morning. He would give me some of his new proposals and seek my opinions of them. I always answered honestly; if I thought his plan crazy I would tell him so and I think Fraser respected me for this.”

He probably also consulted a handful of politicians, and certainly consulted a few outsiders (we know he did with F.P. Walsh). Whether he had the multilateral discussions like Coates is not recorded.

Another mid-century nationbuilder who we know consulted a lot was the surgeon Douglas Robb. Many of his books advocating health reforms were collective efforts, while the adoration of the younger members of his surgical team is reminiscent of that of the members of Coates’ thinktank.

The contrast is Rob Muldoon, who was included in the book to illustrate that the mid-century nationbuilding could go wrong (perhaps a little unfairly because his time was well past the mid-century and the world has changed, even if Muldoon kept to old nostrums). As the record of history thickens, there are numerous reports of bilateral interactions between Muldoon and his policy advisers, but the sense of each is that it was a hierarchical relationship, rather than a consultative one we get in the Ashwin quotation. Ashwin and McIntosh were lower in the hierarchy of age, experience, and position than Fraser but give no sense they were made to feel inferior. Similarly, while Coates by age, experience and position was senior to members of his thinktank, Sutch and Dick Campbell (the ones who left memories) thought they were involved.

Muldoon’s style cannot be solely attributed to the formalisation of the policy process that occurred in the late twentieth century. His successor Minister of Finance, Roger Douglas, also had – Coates-like – free flowing discussions with advisers and officials. Rather, Muldoon, the clever but lonely schoolboy, carried on this approach into adulthood, and could neither encourage collective discussions, nor treat those involved as able as he. Muldoon said that nobody understood the New Zealand economy better than he. Even were that true, there were pairs of advisers who knew better, although he rarely harnessed them in the way that Coates did.

Muldoon did have his advisers – sometimes called the ‘kitchen cabinet’ – but characteristically they were more cronies than talented individuals, a praetorian guard to protect him from the able rather than to enlarge his policy making process. (Muldoon also had an official advisory group, sometimes called a ‘thinktank’. But it was for intelligence gathering, and does not seem to have operated in the manner of Coates’ thinktank.)

The talented were suppressed. In the Cabinet and hence not entirely avoidable, George Gair, for instance, was given the task of dealing with portfolios that other ministers had botched. But despite this acknowledgement of ability, he was not a part of Muldoon’s inner circle, and they rarely spoke. Similarly, it is rare to get a sense of any warmth towards Muldoon from senior officials – respect yes, affection rarely.

It cannot be entirely a matter of being an insider or outsider. Muldoon knew he was not readily accepted by the policy elite in Wellington. (Treasury officials had considerable respect for him in the 1972 to 1975 period, following his term as Minister of Finance under Keith Holyoake. He blew this goodwill by his approach to personnel, although his social conservatism were also alienating).

Norman Kirk also saw himself and his Labour government as outsiders, but that did not prevent him from having close affectionate relationships with some officials, notably the head of the Prime Minster’s Department, Frank Corner. Fraser probably thought of himself (and Labour) as an outsider too – before 1935 he had been in the wilderness all his life. Both Fraser and Kirk believed they had a mandate from ‘the people’, which empowered them to over-ride the policy elite. But it did not prevent them (or Bill Rowling, who was more at the heart of the machinery of Kirk’s government) from working cooperatively with senior officials.

It takes skill to identify those who can contribute. Notoriously, Coates’ thinktank was to his left (Ashwin aside). Fraser was surrounded by a galaxy of talented men (together with his wife Janet). Their politics were not his own, and indeed he promoted a number of men who at earlier stages had been his political enemies: Bernard Freyberg from military suppressor of the Auckland waterfront strike in 1913 to Governor General and prime minister’s confidant in 1946, Sutch and Arnold Nordmeyer who had been on the other side of the leadership succession battle in 1940, Coates who had been driver in the hated coalition government. (Ashwin’s ‘for some reason’ in the above quotation may indicate that he was aware he and Fraser were on opposite sides of the political spectrum.) Fraser’s blemish was his relationship with Jack Lee: perhaps it was the father rejecting a rebellious son – perhaps Lee, who saw himself heir apparent if not heir denied, threatened Fraser’s self confidence as ‘The Leader’.

In summary, the leadership style that succeeded among the mid-century nationbuilders involved a process of consultation (not necessarily involving only officially designated advisers), in which those involved were talented (and had a mix of skills) and felt they were valued and involved. The leader was not necessarily the most talented on all dimensions, but he was, confidently, ‘The Leader’. His policy success seemed to have involved a degree of humility, that others were in some way cleverer, or knew significant things he did not, or could do things he could not. (Robb must have known he was not the best technical surgeon in his team.) Perhaps too, he worried that he was not quite on top of the problem, and so kept reworking it, rather than seizing slick answers. But, unlike Walter Nash, he could make decisions when he had to.

We can see how such a leadership approach is likely to lead to quality policy making. It is rare, when a significant policy issue first appears, that the problem is well defined and the viable options obvious. It takes reflection to transform the incipient policy problem into a solvable one,. Typically the process of reflection benefits from a number of able thinkers with a diversity of talents and backgrounds. A consultative style of leadership enabled this transformation.

Yet the network of consultation can get too large and destroy the creativity which is sometimes crucial in the development of policy in new circumstances, where an original policy framework is needed. The policy development process which dominates official advice today, works well within a policy framework. It does not seem particularly effective dealing with the creation of a pragmatic policy framework in novel circumstances. Better the Coates thinktank of the talented, the Fraser bilaterals with the able, or the more open public debate which seems developing today.

The problem-solving policy approach explains another feature of the nationbuilders. Irrespective of whether they came from the left or the right, their solutions tended to be centrist, but mildly progressive. This is not to say that Coates or Fraser, say, did not on occasions put some political twist on their policies, and frequently their policies were publicly presented with a somewhat stronger twist than was justified. But ultimately the vast majority of policies address the problem in a forward looking way in a manner with which those of the moderate left or right can live (so that old enemies Coates and Fraser could respectfully work with one another in the War Cabinet).
(The one exception to this generalisation is policies which are primarily distributional but do not have much other influence – even though it is normal for the rhetoric to disguise distributional impacts with efficiency justifications. A simple illustration is the way in which patronage appointments are likely to be biassed by party considerations.)

The chapter now sets out the policy problem of nationbuilding in a globalised world. After that is consideration of how the political leadership of today has or can respond, with particular attention to the policy process.

The Meaning of Globalisation

At the heart of the problem of nationbuilding, is how to respond to external circumstances, especially globalisation. The popular sentiment is, by the standards of scholarly discourse, opinionated, uninformed, and confused. The growing consensus among scholars may be summarised as follows:

First, economic globalisation is defined as “the closer integration of national economies”, to which I add “and regions” because internal integration is so similar to, but preceded, international integration. For instance, it is helpful to think of as the economic integration of the regions of the United States as a form of globalisation. The addition becomes important as this chapter extends globalisation to cover nationalism.

There is an ambiguity in the scholars’ definition. ‘Globalisation’ may refer to the process of globalisation, or it may refer to the degree of globalisation. The distinction can be important, especially when different time periods are compared. In the first half of the twentieth century the process of globalisation was quiescent or even reversed, but there was still a considerable degree of globalisation, that is interdependencies between economies. Thus the process of globalisation was stagnant or reversed in the first half of the twentieth century, but the level of globalisation was still higher than what it had been in the first half of the nineteenth (when the process was more vigorous). Moreover the interdependencies are multi-dimensional, so we see today far greater integration of trade and capital markets than labour markets.

Second, in contrast to the popular discourse, economic scholarship does not see globalisation as a recent phenomenon. There is some disagreement as to whether the process starts as early as the first European explorations in the fifteenth century, but the consensus is that globalisation begins in the early nineteenth century when international trade begins to shift from absolute advantage (gold for spices) to comparative advantage, where countries import products they could make themselves but it would be inefficient to do so. The process of globalisation was virtually non-existent in the first half of the twentieth century, despite the degree of globalisation being higher than in the earlier part of the nineteenth century. There is debate whether the stagnation began in 1914 or up to thirty years earlier, but general acceptance it came to an end, and a new phase of globalisation began, shortly after the Second World War, say in 1950.

The pattern is illustrated by international trade. It was 1.0 percent of World GDP in 1820, rising to 9.0 percent in 1929, but falling to 5.5 percent in 1950. In 1998 it was 17.2 percent, and is no doubt higher today. Other indicators – say of capital and labour flows – have the same general pattern but the timing of the turnarounds differ.

Third – and this is less explicit in the literature – globalisation is a consequence of the falling costs of distance. This is no surprise: regionalisation occurs when the connections between regions improve; trade based on comparative advantage is going to be negligible when the costs of transporting the goods are high.

There is an important implication here. As long as the costs of distance continue to fall, the process of globalisation will continue and the degree of globalisation increase. Indeed they will continue for a period after costs no longer fall, as it takes time to make full use of all of them. The implication is that not only will globalisation continue, but there is a sense that it is irresistible as long as it is driven by falling costs of distance. The policy issue is how to respond to the closer integration of nations, not how to prevent it.

These three general facts are from an economist’s perspective. We can, and should, extend, the notion of globalisation beyond the economic, where there is less consensus because of the wider topic and the plethora of disciplines. For this chapter’s purposes, we need only extend the topic to cover nationalism: the ‘only’ is, of course, an understatement.

Nationalism and Globalisation

The English history of nationalism presents a misleading portrait of nationalism for the whole world. As Shakespeare’s Henry V portrays, English nationalism began in the sixteenth century, presumably because of the clarity of international boundaries – the Welsh and Scottish borders aside, and the distance of Britain from a world centred on Rome. However, nationalism only becomes a significant European and American phenomenon in the nineteenth century, and for the most of the rest of the world in the twentieth.

The sources of this upwelling in nationalism were twofold. The Enlightenment (and the subsequent Romanticism) challenged traditional views of identification with class, family, race, and religion, turning attention to community as an identifier of the collective interest. Of course these communities were influenced by older divisions (and often never quite overcame them), but a notion of a community inhabiting a common region became popular (although sometimes relatively distinct communities of interest overlapped spatially).

Second, the notion of a nation was reinforced by the falling costs of distance. When the costs were high – Thomas Hardy’s Wessex novels recall such a time – villages which today are but a car’s hour away were then isolated from one another. As those costs, including the time security and reliability involved, fell the villages interacted. Consequently villagers had to extend the notion of the communities to which they belonged.

The experience of Germany is a better paradigm than England. At the beginning of the nineteenth century, the remains of the Holy Roman Empire had left a plethora of principalities in the centre of the European continent, which generally, but not always, spoke variations of German (but read the same Martin Luther’s translation of the Bible, if protestant). Even today, a German on the western boundary may better understand the Dutch across the border than a German on the eastern boundary. Nevertheless boundaries were drawn. The creation of the German nation-state is a complicated story, ending – perhaps – in 1993 with the union of the East and West Germany but, to simplify, a first step was the customs union (or Zollverein) of the principalities in 1834. In 1871, a Germany state was created following the Franco-Prussian war. The successful commander, von Moltke, said that railways built Germany, referring to his military’s ability to amass quickly large number of troops. However there is a deeper truth here. The German railway system gave communities a commonality (although where exactly were the boundaries had an element of arbitrariness). The rhetoric, not unrelated at first to the rise of the mass newspaper (distributed by railways), reinforced this incipient nationalism, as did the political and military needs to justify and defend (and extend) any borders, however arbitrary.

Prices at either end of a new railway line (and telegraph) began to increasingly move more closely together, so falling costs of distance created regional markets. The geographical widening of commerce needed an institutional infrastructure, which developed from the end of the nineteenth century, requiring a national government to create and regulate the law and related institutions. EU commercial law may be seen as a whole of Europe parallel, while the IMF and the WTO are examples of international ones.

Even in Europe, nationalism usually preceded regional independence and the creation of nation-states, especially in the west and south with the breakup of the Austro-Hungarian, Ottoman and Russian Empires. The phenomenon was to be repeated in the twentieth century with the breakup of the extra-European empires of Europeans nations including the British, Dutch, French, and Portugese ones. (The big collapse in the Spanish empire leading to Latin American independence occurred a century earlier. Completeness requires mentioning that the first British Empire collapsed in the creation of the United States.)

The creation of nation-states had salutary effect on economic policy. The development of the domestic institutional infrastructure also enabled the state to control its border far more effectively than previously. The associated rise of democracy –sometimes it was an increasing of the franchise rather than the universal franchise, but everywhere states became more sensitive to the desires of the masses – meant that the instruments of economic policy became used in the interests of wider groups.

Stagnation of globalisation occurred towards the end of the nineteenth century, as the more democratic nation-states bedded in, and nationalists resisted further extensions of the domain – and the possible absorption of their nation – by the creation of artificial costs of distance, such as tariffs, to offset the falling natural protection.

The steady abandonment of many of these policies from 1950 probably reflects a change in the internal political economies, the recognition of the substantial gains from trades, and the advantages of mutual disarmament of protection. But if the trading of goods and services and the mobility of capital is easier today than it was in the nineteenth century, the movement of labour is far more restricted. Today, the most important economic function of most borders is to prevent cheap labour crossing into higher income economies. (The greatest exceptions are the absence of restrictions between the states of the United States since it first began, and increasingly within the European Union.)

In a sense then, the economic nationalism at the centre of the nation-state, which evolved in the nineteenth century and which stagnated globalisation towards the end of it, remains alive and well as a restriction on population movements, even though many other economic interventions associate with the stagnation are being dismantled.

New Zealand’s Nationalism

While the forces which created the nation-state are evident for New Zealand, its nationalism was complicated by the older nationalism of England. Indeed, its nineteenth century rhetoric was a ‘Better Britain’ (which, incidentally, North Americans also chanted in the eighteenth century). As in the other settler colonies – South Africa aside – there was no revolutionary settler movement demanding independence in the name of nationalism. Rather, the shift to national independence evolved, with New Zealand’s demands being among the more tardy compared to the other settler colonies and to the new European states.

Curiously, none of the mid-century nationbuilders had an explicit nationalistic manifesto, until Bill Sutch in the 1960s, and he in the early 1940s was happy to call himself an ‘Englishman’. It is from the next generation, Bruce Jesson, whose republicanism gets closest to revolutionary nationalism. (Keith Sinclair, who was considered as a candidate for the book, said of his 1958 History of New Zealand that he intended that nationalism be writ large on every page, but that he had to say this shows it was muted.)

Distance and the natural boundaries of the sea simplified New Zealand’s sense of identity, but were offset by emotional and personal attachments to ‘the Old Country’, together with the economic ties. So New Zealand’s separation from Britain evolved organically, like a couple of family members going their different ways under different circumstances. The process was complicated by the rhetoric of ‘Mother England’ but it was a static account of a past Britain, because Britain had also moved on. It may be better to think of Britain and New Zealand (and Australia and Canada) as sisters (or even cousins) than mother and daughter(s).

The trade story is illustrative. Until the 1870s, the main destination of New Zealand exports was Australia, although some was consolidation in Melbourne and Sydney for transhipment to Britain. About half of all imports came from Australia. It seems likely that, had that closeness continued, New Zealand would have joined the Australian Federation in 1901. However by the 1880s over three-quarters of New Zealand exports went direct to, and half of imports came direct from, Britain, a situation which was continued – war aside – until the 1950s. This symbiosis arose from refrigeration (and other transport improvements such as telegraph and steamers, and the opening of the Panama and Suez Canals) which enabled the export of meat and dairy products to feed Britain (and wool to clothe them).

While the myth is that the break in the symbiosis occurred in 1973, when Britain joined what is now the European Union, the data series suggests weakening as early as the 1930s. Decades ahead of his times, Minister of Finance Gordon Coates’ remarked that
“Before 1882 we were an isolated island . . . Then came Refrigeration – and at once our perishables became marketable in England. . . . In 1882 we discovered in Great Britain a bottomless market; in 1932 we discovered that the market was not a bottomless one. The fifty years from 1882 to 1932 were very different from the fifty years before; the fifty years ahead of us will be very different again”
(To illustrate an earlier theme, the insight was probably from one of Coates’ the bright young men, Dick Campbell, whose LSE PhD was on Imperial Preference.)

Economic nationalism was natural in the times of the deteriorating international trade of the 1930s, and what today seem policies to promote self-sufficiency were no more than attempts to husband the limited key resource of foreign exchange. (The argument belongs elsewhere, but here we note that normal market responses were limited by the price inelasticity of exports.)

Thus the pragmatic requirements of policy generated a nationalistic rhetoric, although a muted one. It is idle to argue whether economic nationalism preceded or followed political nationalism. They fed on one another.

Nationhood Today

It could be argued that the economic situation facing today’s leadership is so different from that which faced the mid-century nationbuilders, that there is little to be learned from them. The issue here is not about pre or post the reforms of the 1980s, for they simply accelerated a trend which had been occurring through the post-war era but had almost stagnated in the 1970s under the prime ministership of Robert Muldoon. It is not simply that New Zealand’s composition and destination of exports and imports has changed since the late 1930s. Compared to the interwar period, New Zealand is much more engaged with the world (and not just Britain), in part following the international trends and the opportunities it offers, but also because falling costs of distance make it easier to engage.

Perhaps too, there is a desire to engage in other ways. A grumpy M.K. Joseph, returning from the war and the experiences of other places and ways of life that it presented, wrote in ‘Secular Litany’ that in the 1950s New Zealanders wanted to be defended ‘[f]rom all foreigners with their unintelligible cooking’. Today, there would be a riot were the kitchens of New Zealand without the ingredients which enabled exotic cooking.

There have been two simple reactions to this new situation.

One was the colonialism of the advocates of the reforms of the 1980s and 1990s, which abandoned the notion of a nation as having any relevance to a modern economy. In practice the subservient mentality resulted in inefficient solutions, because its imitativeness did not recognise that the international generality of the theory was actually dependent on some extremely specific assumptions peculiar to another locality – usually the United States. Even ignoring that the US is considerably larger than New Zealand, and as the issuer of the international currency of preference (the US dollar) it has options in fiscal and monetary policy unavailable elsewhere, its governance arrangements arising from the oldest constitution in the world are not always the most efficient: its electoral system, its lack of effective parties in the legislature making coherent policy difficult, and its patronage appointment of senior public officials. Those with colonial mentalities may have resisted the notion of country, but the policies they were implementing came from another country rather than were universal or optimal.

But even had the policy implementation had been more sensitive, the colonialists’ policy framework had a major omission. People want to belong to larger collectives than themselves and the family. (Indeed some advocates of a country-free economic policy were just as parochial as their fellow New Zealanders during an international sporting match.) Thus the public’s yearning for ignored expressions of nationhood, such as the local or public ownership vehicles of commercial provision of culture, such as TV New Zealand. (A nice trivial pursuits question is for which New Zealand company did the public esteem rise from around 20 percent to around 80 percent when it went, for practical purposes, bankrupt. The answer is Air New Zealand, because the quasi-bankruptcy led to re-nationalisation.)

While this colonial mentality was important a decade ago, it is no longer dominant, largely being confined to those in the elite (including the policy elite) who are alienated from the rest of New Zealanders. More important is the nostalgic, those who recall the old practices while ignoring that the subsequent changes are responses to new circumstances which cannot, or are not, easy to reverse. The most pernicious nostalgia is to emphasise the merits of the some of the old ways, while accepting many of the changes and ignoring the contradiction between the two.

The nostalgic enthuse for the nation-state of the mid-century nationbuilders, with its ability to control economic policy within and across borders., while at the same time accepting and indeed benefiting from the economic intercourse that the subsequent globalisation has generated. (Thus there were those who obtained books on globalization via Amazon.com, used Microsoft based software to contact their friends, and got on Boeing planes to go to Seattle to protest against globalization, Seattle then being the home of Amazon, Microsoft and Boeing.)

There is little recognition that trade (or international borrowing) is like marriage, where two people (or countries) agree to give up some personal independence (sovereignty) in order to benefit from the resulting cooperation (voluntary economic exchange). It is true that the rules of the marriage matter, and that often a small country like New Zealand has little influence on determining the international ones. Even so, it may still be in New Zealand’s interests to participate in the ‘marriage’, even if only as a junior wife in a large harem. (Anti-globalisers, trying to improve the rules – making them fairer and less onerous on small states – rather than raging against globalisation, have much to commend their efforts.)

The widespread nostalgia for mid-century nationbuilding, including the advocacy of policies from the past which do not take into consideration subsequent changes, is a part of the challenge to today’s leaders.

There are two further significant difference from the days of the mid-century nationbuilders. Theirs was a white male program, but today’s approach has to encompass women, and Maori and other minorities. Some of those minorities can properly think of themselves as New Zealanders and yet belong to the diaspora of another nation. Similarly there is a New Zealand diaspora offshore whose interests do not exactly align with the typical home-based New Zealander.

The second difference is that the mode of decision making has changed. There is now a formal policy process within government (which might be described as rigorous to the point of rigor mortis). Crucial is the policy framework. While in the 1980s it was imposed by a handful of people, that is much less possible in the post-MMP political environment, which requires more consensus that in the 1980s and earlier. So a community wide policy debate may occur before the final decision is made, and which may not be led or even controlled by that the government. A crucial difference from fifty years ago is that power is much more diffuse.

Ultimately though, the political leadership still makes crucial decisions, as the Helen Clark-led government did with its Growth and Innovation Strategy (GIS). And there is some choice within a broad consensus. Clark-led governments since 1999 have been uncompromisingly committed to what GIS called ‘global connectedness’, despite the widespread nostalgia for the insulationism which characterises the public’s perception of the mid-century nationbuilding. In fact, as the book points out, the nationbuilders were not inherently isolationist and it is easy to give examples of situations where they engaged with the world. (The best might be Fraser’s decision to maintain New Zealand troops in Europe and the Middle East after Japan entered the war). The record shows that not only was Sutch committed to an export oriented manufacturing economy (he is the father of export diversification) but that he shifted his position as circumstances changed or new ones came to light. Given that circumstances have continued to change since he died, who knows what Sutch would think today (other than it would be perceptive, orthodox, and forward looking)?

The key to the current government’s stance may be Kirk’s vision of nationhood, articulated as
“Let us have a sense of pride in being New Zealanders. Let us recognise the value of the unique way of life we have built here – a humane, non-violent society, free from the social and economic injustices that plague so many societies.
“Let us proudly cultivate a sense of nationhood and stand up for ourselves in international political and trade circles, not acting in a spirit of independence merely for the sake of asserting ourselves, but to protect our own interests, both political and commercial.
“Co-operation with other nations does not necessarily mean subservience or submission: we are seeking friends, not masters.”

Kirk, himself greatly influenced by Sutch, is a major influence on current Labour politicians. (One might say his intellectual leadership is greater than, and has been more long lasting than, his political leadership.) It is no accident that Prime Minister Helen Clark has taken the arts, culture and heritage portfolio: Fraser and Kirk were deeply involved with those too. She also actively attends international sporting fixtures and military observances. For her global connectedness is intimately connected to national cultural development.

It harder for a commentator to assess how an opposition may govern. It could lapse back to colonialism maintaining global connectedness while letting nationalism die. It could go down a nostalgic path abandoning aggressive global connectedness in the name of nationalistic promotion. Even so, National’s Jim Bolger, would on the basis of his record as prime minister be comfortable with the above sentiments of Kirk (if less so with the oratory). And he would have ruthlessly rejected any racism, as did Clark in the 2002 election.

The notion that a country may actively promote its national culture arose in the international negotiations over the Multilateral Agreement on Investment, when France resisted some of the neutral ownership proposals because national ownership could be used a means to promote national cultural ends. More recently the EU trade commissioner, Pascal Lamy, has advocated ‘collective preferences’ in trade relations. That he is French does not make this a peculiarly French concern. Rather the French are articulating a position not overly different from that of many other – but typically smaller – countries.

As long as (democratic) countries can decide who may cross their borders and who can not – who may belong – they have an incentive and mechanism to promote the nation-state. The challenge is to avoid a nation-state rhetoric which is aggressive towards those outside the borders and dismissive (or worse) of some of the minorities within. If that was a leadership strategy pursued by some other nations in the mid-century, it was not the one pursued by New Zealand’s nationbuilders then or largely now.

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The Growth and Innovation Strategy: Next Directions

These notes were prepared are for a discussion in July 2004. They do not represent the interests, views, or expectations of anybody else.

Keywords: Growth & Innovation;

In February 2002, The government set down its growth and innovation strategy in Growing an Innovative New Zealand. These notes are about where it might want to do next.

As will be evident a major influence on this is the Growth Culture report which asked New Zealanders what they thought of economic growth. They said is they had higher objectives than GDP per capita. However an appropriate growth strategy is necessary to attain those objectives. The success of this growth strategy may not necessarily be measured by GDP, but the general principles of promoting economic growth still apply.

The Growth Culture report, that is how New Zealander’s think about these issues, is not inconsistent with the Growth and Innovation Strategy (GIS). Indeed it gives a foundation to develop it.

The Vision Statement

The vision statement of GIS was in two parts. The opening overview is

A New Zealand Vision
A land where diversity is valued and reflected in our national identity
A great place to live, learn, work and do business
A birthplace of world-changing people and ideas
A place where people invest in the future

Personally I find the vision moving. However I am surprised it contains no reference to ‘social coherence’. It is implicit but I wonder whether there should not be a fifth line which summarises the first four, perhaps ‘A New Zealand where we want to participate in and belong to’. (A la the 1972 Royal Commission”)

The Growth and Innovation Framework

GIF states ‘Policies will be aimed at sustaining:
A stable macroeconomic framework.
An open and competitive microeconomy.
A modern cohesive society.
A healthy population.
A highly skilled population.
Sound environmental management.
A globally connected economy.
A solid research, development and innovation framework.’

I have wondered why there is reference to a ‘healthy’ population but not to an educated one. Perhaps the fifth policy principle should be extended to
A highly educated, creative, and skilled population.

Noting that one element of GIF is a ‘modern cohesive society’ the logic of the previous section might be to move this up to the vision statement.

Brand New Zealand: A Major New Direction?

There is much talk about ‘Brand New Zealand’ presented as a an approach to presenting New Zealand products to the rest of the world. The Growth Culture research suggests that to do this in an narrow way – say the decisions of an expert group focussed solely on business success (and then perhaps of only one or two sectors) – would generate widespread cynicism among many New Zealanders. What is needed is a Brand New Zealand which New Zealanders own.

It might be developed the following way. It would start by asking how New Zealanders want to present themselves to the world. Their desired image of their identity is not just of products, but would include sporting and cultural success, and of themselves as people. None of this would conflict with commercial requirements: indeed with a little skill it could enhance it. It is likely to be wider than the ‘clean green’ (and 100 percent) image which is used heavily in the tourist industry, but excludes New Zealanders as decent people with ability ingenuity and drive – and a sense of humour. (I belong to those who think the kea would be a better national bird, that the kiwi.)

(I ponder if we should also ask about aspirations. This was triggered by my thinking about design (discussed below), and the thought that New Zealanders might like to have a better design sense. I fear that any survey of expressed aspirations would be more in terms of clean finger nails and asking that the young use proper grammar.)

Following the survey, an expert group would distil New Zealander’s expectations into a set of possible images, brands, symbols, and the like. I imagine they would want to build in a bit about how other sees us. They would observe that what New Zealanders claim as their ‘unique’ values are claimed by most other cultures, but there are symbols which are unique (e.g. kakapo, kea and kiwi) and build on to these.

The expert group would then go back to New Zealanders and ask them to judge and prioritise the various brands/symbols/images. I see this as an open national debate. The exercise would not be looking for a single symbol, but a cluster of them, with which New Zealanders would be comfortable. (The symbols must be inclusive.) Of course there will be cynicism, and I’d include in our identity the notion that New Zealanders can laugh at themselves.

There would be a board of national leaders (perhaps presided over by an ex-governor general) who supervise the experts and the process. The board would include national icons including some business leaders. Noting the last sentence of the previous paragraph I’d include a national humorist (with an agreement that he/she may publically parody the exercise). Perhaps only a core of the panel should be selected, and they could consult with the public for the rest. If they chose the All Black and Silver Fern captains then so be it.

I dont see any reason why the process might not include a discussion on the flag (or flags), although this must only be a part of it all, and a minor part.

The role of the economy should not be any more important in this branding exercise, than the role of the economy in attaining our national objectives – that is central. Similarly for the role of business. It goes without saying that the Maori are an integral part of any New Zealand international brand, but as the vision thing hints, we have to move away from the biculturalism which dumps all non-Maori into a single group, and recognise that we are a multi-cultural society.

Global Connectedness

In my view Global Connectedness is the key element of the GIF. The following are some ways of furthering it.

Branding: See above.

Infrastructure: In the last few years considerable attention has been paid to domestic infrastructure – roads, rail, electricity and water (see sustainability below) is coming on – although it will take a decade to deal with the backlog. In the next few years we need to pay attention to the external infrastructure – seaports, airports, broadband links.

I would also like to see a report on airfreight, which is likely to become more important in New Zealand’s export future as more high-valued low-weight products are produced. The report would be a review of the industry, in terms of its existing business and capacity and future prospects, without necessarily any policy recommendations. Ideally it would alert commercial airfreighters into industry possibilities, and exporters to the potential of airfreighting.

Free Trade Agreements: Our FTA strategy is unclear. Certainly prospects from the Doha Round look very promising – we should know within a fortnight or so – and that has to be the priority. The role of some of the proposed FTA is unclear. Is it that we will do deal with anyone who offers, or is there some overall strategy? (I understand a little why the China and US deals are important, but I am in a very small minority. I join the majority by not understanding what our strategies towards Australia or EU are.)

It may be that out of the branding exercise will come some distinctive feature which may influence our FTA approach. For instance if we like a ‘clean green’ New Zealand, where does the environment fit into an FTA?

Migration: New Zealanders report they dislike migration (despite the high proportion of us born overseas). Again we need to think about it more carefully. One issue is what are we doing to attract more New Zealanders home, and to make use of the offshore diaspora who still want to be a part of the nation.

Economic Structure

World economic trends, especially technological innovation and the falling cost of distance, plus the Doha Round and some key FTAs (China, possibly ASEAN) is going to change the economic structure of New Zealand. I have written elsewhere about this, arguing that service exports will continue to rise, while the share of general manufacturing (and the importance of the Australian market) will fall, to be replaced, one hopes, by intra-industry trade of high tech, high skill, high quality manufactures and other products (to other rich nations).

Here are some industries which may need attention – perhaps just a review:

The Doha Round: Some industries are likely to benefit significantly from the Doha Round. Are any policy responses required?

The Food Industries: A review of the export food industries is being undertaken.

Cut Flowers: In my view is this has an especially promising export prospects if we go about it the right way..

From General Manufacturing to Specialised Manufacturing: What needs to be done to facilitate this shift as changes in the world economy contracts New Zealand’s general manufacturing.

Clinical Stage III Trials and Pharmaceutical Manufacturing: These are two industries arising out of the existing biopharmaceutical research industry, where suitable government assistance could lead to world class industries appropriate for a growth and innovation strategy.

Furniture: There are things going on in this industry which might be worth pursuing.

Infrastructure and Airfreight: Above

Non-tourist Export Services: As for airfreight we need an overview to get a sense of what is important, even though there may not be any immediate policy issues.

Design: The Design Task Force missed the boat. It was too focussed on ‘the’ design industry, and not focussed on ‘design throughout industry’ (or – as the Growth Culture Report would suggest people would prefer – ‘design through life’). How can we raise design standards and sensitivity throughout the community from the shop floor (and the preceding education and industrial training) onward to the New Zealand consumer?

Smart Workplaces: Smart Workers: What further has to be done here? Industrial training is mentioned below.

Regions: I have never been sure where regional policy fits in GIS

Public perceptions of the first phase of GIS got overwhelmed by the focus on the four industry taskforces. The second phase still needs their equivalents, but they should be seen much more contextually. So I have mixed in more of them, and at different levels of involvement.

Savings

Savings gives an individual and a nation independence. The government has had an excellent saving record in recent years. (It is also consistent with its stable macroeconomic framework). The household sector’s record is much less satisfactory.

Long Term Contractual Household Savings: There is a committee of enquiry at the moment. I’m hoping it will come up with a proposal for encouraging long term contractual households savings, say with a fiscally neutral incentive in which deposits into and returns on the scheme are income tax exempt, but withdrawals are taxed (technically it is EET). Unless we have something really imaginative (but consistent with economic theory) we are not going to get the savings lift we need.

: Student borrowings for tertiary courses involve financial dissaving to fund human-capital investment. This dissaving is offset by the government savings. Even so, we need to try to reduce the student debt burden. Among the possibilities are:
– improved student allowances;
– more incentive to repay early;
– partial remittances for staying on in New Zealand;
– partial debt remittances for persons working and living well away (say 80 kms) from major tertiary centres (thus sharing the benefits of tertiary education around the regions).
– partial debt remittances for persons working in socially valued low paid occupations (such as charities);
– partial debt remittances for parents at home with small children;
– is there a place for some employers to contribute to the paying off employee debt?
(By ‘partial remittances, I have in mind that the government may write off $1000 p.a. in each case.)

Unlocking Government Investment Funds: There are a number of government investment funds which are administered by separate boards of independent trustees, without any government direction, other than as specified in legislation. (ACC, GFS, NZS) There needs to be a review as to whether there are any artificial barriers which prevent them investing in New Zealand (but not in anyway compromising trustee independence). Possible new lines include the funds
– investing in SOEs and other government owned or part-owned corporation;
– investing in venture capital opportunities.

Education

The international surveys suggest New Zealand produces one of the top secondary educational performances in the world. We need to strive to stay there. The priorities of focussing on the teaching process and on the lower tail are sensible ones. We also need to get our tertiary system up to the top of the international top too. (The – albeit fragmentary – evidence is that we are producing two many certificates and not enough degrees.)

The New Zealand Brand: Suppose we construct/identify a New Zealand Brand/Image. How is the education system going to respond? Some sort of core history/social studies may be key here, albeit with opportunities for diverse responses. It should not neglect the economy (and consequentially businesses role) in the growth of the nation (as far too much New Zealand history research and teaching does today).

: What contribution can the education sector make to enhancing New Zealanders sense of design (above) – at least among younger generations.

: Tertiary education seems to need a complete review, at least of funding (and the related quality control, or lack of it), which is very influential on student choice (much funding seems wasted). The totality of the needed reform is too large to go into here but there needs to be greater focus on the provision of generic skills, the provision of industrial training (with an experience dimension in them), and of genuine education.

Research and Development

We need to give more emphaisis on the effective international tramsmission of research and development.

Compliance Costs

Business: The government has a program of reducing compliance costs on business.

The RMA: Many issues have been addressed and waiting times are being reduced. Even so it is a continuing issue with considerable conflict between developers and community, which probably cannot be readily resolved.

People : However there is no parallel program for reducing compliance costs on people. Was the question of the compliance costs of obtaining a new passport including vias renewal considered when the life of passports were halved from ten to five years? There needs to be a focussed effort within the public sector of simplifying the interactions by individuals who approach it. Incomprehensible websites are too common, symbolising the tendency for the designers to forget that they are meant to be communicating with the public. The private sector is under competitive pressure to communicate with its customers. The public sector has to make a special effort to do the same.

Both the Work and Income and Inland Revenue could make available their software which are used for determining entitlements and income tax.

The Digital Strategy is under development.

There will have to be a sustainability component to the GIS (integrating the 2003 package). Areas which need particular attention are energy, water, and the (see above).

Footnote on Global Connectedness

It is a common moan about New Zealanders that we are insular. This misunderstands the actually situation. The irony is that the moaners are insular, for they have little sense of how insular is most of the rest of the world. We have one of the highest ‘born overseas’ proportions in the world, we are great global travellers travelling far from home, we are major exporters and importers (especially when adjusted for the difficulties of location, and that we cannot be a significant re-exporter), our private donations for foreign assistance are among the highest in the world and we take in refugees with generosity, international news is a central feature of our media and events are debated in the pubs and cafes of the country (admittedly not always well informed, but the intentions are there). Some of these statistics are consequential on the smallness and location of the country, but it is just ignorant to say New Zealanders are insular. I say this because we underplay our global connectedness. At issue is improving it, especially for business, in the context of a rapidly changing world.

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Economic Leadership

Notes prepared for an informal presentation (June 2004)

Keywords: Growth & Innovation; Political Economy & History;

The ‘Growth Culture’ report of the Growth and Innovation Advisory Board (on which I am on) raises major questions about the direction of economic policy. The survey had been commissioned to understand how the public could be involved more effectively in the economic growth strategy. However their responses firmly indicated that the large majority of the public had objectives which were different from those espoused by the nation’s economic leadership.

Because their responses were so unexpected, the survey was not designed to distinguish between the various versions of economic growth strategies: Rogernomics, Ruthanasia, Bolgernomics, the Knowledge Economy, the Growth and Innovation Strategy, post-Rogernomics, or those who argue for policies which they will say will return New Zealand to the top half of the OECD. The public, probably not distinguishing between them, is probably saying ‘a plague on all your houses.’

They certainly dont trust those who advocate economic policies, probably reflecting that for (literally) decades they have been promised benefits from economic policies, which have never been realised: when the rogernomic policies began in 1984, New Zealand was in the top half of today’s OECD. (Recall the woman who sued for divorce from her economist husband on the grounds on non-consummation. ‘He would stand naked at the end of the bed promising that things would get better, but nothing else happened.’) The public especially eschewed ‘burning platform’ approaches, the demand for dramatic policy changes to avoid promised economic crises. ‘Wolf’ has been cried far too often. One suspects they also think the policy advocates are self-serving.

There may be a deeper concern about ends and means. The public did not seem to see GDP as the end of economic policy: they had broader objectives. Being told that it was necessary to privatise the health system, say, to increase GDP growth, they would prefer no increase. GDP probably does not properly reflect their vision of the good society, although what they do value usually requires more economic output. The underlying challenge is to utilitarian economics which has assumed for two centuries that more output means better. We may be entering a post-utilitarian age.

The New Zealand public are turned off by economics, evident by today’s media economic debate being largely confined to separate business pages. (One survey found 42 percent said they were ‘bored’ by economics.) Compared to a decade or so ago, economic issues hardly hit the headlines, today. Even the Minister of Finance spends much of 2004 focussed on the foreshore issue, while political prominence came to the Leader of the Opposition, an economist and ex-Governor of the Reserve Bank, when he turned to race relations issues.

Yet national economic issues will continue to influence the course of politics. The leadership challenge is to identify the public in terms of its objectives, and manage the economy to meet them, rather than – as some of the earliest responders to the survey implicitly did – saying the public was economic illiterate and the leadership knew better. In an MMP environment that may be politically suicidal.

Leading a Nation

Notes for a chapter in a book Leadership and Political Change (June 2004)

Keywords: Political Economy & History;

My book, The Nationbuilders, described a particular phase in New Zealand’s economic and political history, between 1932 when Gordon Coates became Minister of Finance and the election of the Labour Government in 1984. It describes a group of (mainly) men embarking upon a strategy of developing an independent nation with its own economy and culture but engaging with the rest of the world. I told the story through their biographies, but it could have been told other ways, through historical sequence or policy themes for instance, or with more biographies, had there been the space.

The nationbuilding strategy came out of the distancing of colonial New Zealand from imperial Britain, instanced by everyone of the nationbuilders having grown up in New Zealand (and they all died there), together with the impact of the two world wars and, crucially, the Great Depression.

At the suggestion of the publisher’s reader, the book also reviewed some politicians who predated the Nationbuilders (many of whom were not politicians, the shift indicating the increasing decentralisation of national leadership). The earlier ones were nationbuilders too, but they had a different conception of nation: each generation has its own. Indeed the book divides its Nationbuilders into two periods (separated by the artists) with discernable differences between them.

The generation which immediately followed 1984 was more colonially imitative than nationally independent, but there seems to be a new nationbuilding phase evolving from the late 1990s. The book argued that it cannot be a replication of the earlier one, not least because the country’s leadership is no longer dominated by white males, who (mainly) assumed a homogeneous society largely like themselves. (Additionally, the intrusiveness of public scrutiny of the national leadership – the impact of television – has markedly changes the relationship between the leadership and the people.)

Do the earlier nationbuilders have much to teach any new ones? First, luck is important, as always. Second, the earlier Nationbuilders could be said to be authentic New Zealanders, generally reflecting the experience on the population (white males anyway) in their earlier years, generally respecting them in a way that the following colonials did not. Third, whether they came from the left or the right, the successful Nationbuilders were moderately progressive, addressing the nation’s problems in a practical rather than ideological ways. (The failure was Rob Muldoon, who tried to repress social change.) A fourth key feature was their willingness to surround themselves with able people. This is true for Coates (and Keith Holyoake had there been room for another politician), but the best example is Peter Fraser, who harnessed a galaxy of the talented, not all of whom agreed with his politics.

While these characteristics may remain eternal in a democracy, each generation has to apply them anew, in the context of their nationbuilding vision. Compared with their predecessors, today’s putative nationbuilders face the complications of a much more diversified society, greater public scrutiny and cynicism, together with pressures from globalisation challenging the very notion of nationhood.

Offshore Debate: Who Is Better Off; Who Worse Off?

Listener: 26 June 2004.

Keywords: Globalisation & Trade;

Economists have traditionally divided the economy into the primary, secondary and tertiary sectors. The justification is long forgotten, but geographically, the primary sector – farming, fishing, forestry and mining – had to be close to the resources it processes, while the tertiary sector – services are the most prominent – had to be near its customers. Secondary – manufacturing – had more locational choice, which is why much policy was directed towards influencing its location. The categorisation was never perfect. Tourism is in the service sector, but it brings its customers to its location. Perhaps it should be reclassified as primary. Other service activities – the education of foreign students – also bring the customer to them. But in recent years, other chunks of the service industry have gone walkabout, as telecommunications costs have collapsed.

Who, a couple of decades ago, would have envisaged virtual retailing such as amazon.com? In the US 14 percent by value of books are sold online, as are 5 to 10 percent of music, event tickets, leisure travel, videos, clothing and computer hardware and software. Traditional bookshops have survived with their customer service, the opportunity to browse and (in the US) the wafting smell of coffee through the store from their internal coffee shops.

A big transformation, which has generated much more political heat in the US, is “outsourcing”. A decade ago, outsourcing referred to government departments privatising some of their internal activities (say, the army using private caterers), or corporations doing broadly the same thing (eg, abandoning their internal legal division and using a law firm). Today “outsourcing” refers almost exclusively in the US to using foreign suppliers. Sometimes it is called “offshoring”.

Perhaps the most familiar outsourcing/offshoring is the call centre, so when you book your airflight, you may interact with someone in another city or another country. A bigger issue is the outsourcing of business processes. For example, an Indian based in Bangalore (India is always the example) may enter the data embodied in an emailed image of a form filled out in the US into an electronic file that is emailed back to the US. Or he may decide whether a US applicant is creditworthy (because of the time-zone differences, this reduces the decision period by two days). Or he may develop some software rather than have it done in the US. (Of course, the Indian could be transferred to the US, but apparently many would prefer to stay at home.)

The US appears to be losing jobs to India, causing much anxiety, especially for those in occupations and regions that lose out. An economist observes this is a middle-class parallel to the working-class concerns of US steelworkers becoming redundant as the result of steel imports from, say, Korea. The political responses are not too different, either. The US Parliament has just passed legislation prohibiting foreign outsourcing by government departments.

But that won’t stop private firms, although there are conflicting views on the relevance of outsourcing to each business. Costs may be key. Some US firms have found cheap local alternatives (eg, using students for data entry). And those that do go overseas are facing rising wages – they went up 10 percent last year – for outsourcing Indians, for there is not an unlimited supply of those with the required skills.

In contrast, there is an almost unlimited supply of Chinese peasants able to man (and woman) their manufacturing plants. It seems likely that China can supply unlimited quantities of general manufacturing to the world without major wage rises. But an Indian peasant doesn’t have the English fluency for an outcall centre, nor the college degree for computing.

Despite the prosperity that outsourcing has generated, the Indian peasants threw out their government last month, because they weren’t sharing in the “Shining India”. (China doesn’t have elections as free as India, so we don’t know what their peasants think.)

So globalisation is changing the location of the world’s industry, just as outcall centres are shifting jobs into New Zealand’s regions out of Auckland and Wellington. Some Americans and their localities are worse off from losing business to India and elsewhere. The offset is the lower costs to those who are charged for the outsourced services (which is the rest of the US). It is exactly the same argument as applies to outsourcing steel – or any international trade. The theory says that the US as a whole is better off, provided that the unemployed workers are absorbed back into the labour force (probably at lower wages), but the theory involves numerous assumptions that may take time to apply, if they apply at all. Practice suggests that much international trade is beneficial.

I was in the US on a grant from Fulbright New Zealand when I wrote this column.

Exports Good, Imports Bad: the American Parliament in Action

Listener 12 June 2004. (Fulbright New Zealand enabled Brian Easton to visit Washington as a Fulbright Distinguished Scholar.)

Keywords: Globalisation & Trade;

Other than the New Zealand embassy, it was the only occasion I entered an official building in America without having to showing an identity card. For Congress (the American parliament) is insistent that little should come between them and their constituents. (But yes, there was the metal detector.)

I was visiting the House (of Representatives) Committee on Agriculture, with its own room, not much smaller than our Parliament’s debating chamber, in ornate American neo-classical style complete with chandelier. The senior members sit behind desks in a horseshoe arrangement that encloses the rest of the 50-odd representatives (one black, one woman). At the open end is the table for the witnesses, behind them tables for press and officials, and chairs and crushed standing room for visitors (including a New Zealand Embassy counsellor).

The occasion was the review of trade policy. The Republican chairman gave a short speech that said exporting was very important to American agriculture and the senior ranking Democrat said the same thing (so bipartisan was the committee one had to know that Democrats were on the right of the horseshoe and Republicans the left). Then the two witnesses gave brief summaries of their portfolios, followed by questioning from the committee.

I got little sense of the Secretary for Agriculture (the equivalent of our Minister of Agriculture), Ann Veneman, who was only asked about the major trade disruptions from a minor outbreak of BSE. But Robert Zoellick, the US Ambassador for Trade Negotiations (our equivalent, the Minister for Overseas Trade, is also Minister of Agriculture), was pressed long and hard. He handled the wide range of questions masterfully, shrewdly combining the national strategic context, the details of a particular negotiation, and a sensitivity to the questioner’s interests.

A congressman from, say, Hawaii would (after enlarging on the beauty and importance of his home state) ask about sugar. For, while nothing was done for the Australian sugar producers, the Central American trade deal gave them increased access to 1.3 percent of US production, which threatened, he said, his constituency s sugar farmers. Zoellick patiently explained that without sugar there would have been no deal (in contrast to Australia) and so the interests of domestic sugar producers had to be offset against the gains for other farmers.

The deal meant that half of US farm exports to the region became duty-free.* Many times over, Zoellick pointed out that losses for some farmers would be more than offset by gains for others. He observed that the beef farmers in Hawaii were better off. One congressman vigorously pleaded that sugar be taken out of all future negotiations. Zoellick danced around the question, eventually explaining that he could not go into an international negotiation with his hands so tied. “I would have been pleasantly surprised had you given any other answer,” the congressman replied.

America separates its legislature from its executive, so that the President’s ministers are not in parliament. Yet Zoellick seemed to know every member of the committee personally, and often their electorates as well. In each trade deal he is negotiating not only with the country involved, but also with the elected representatives of the American people. This man, who consorts with the trade ambassadors of the world and reports directly to the President of the United States, reminded me of Kipling’s admiration for someone who could “walk with kings – nor lose the common touch”.

His underlying message can be summarised as follows:
– the future of US agriculture is dependent upon export success;
– the success is threatened by the EU, which funds 88 percent of the world’s agricultural export subsidies. On another measure, the EU trade-distorting domestic support amounts to about $US95b annually while the US’s is about $US45b (to put this in proportion, New Zealand’s annual GDP is about $US80b). However, a US farmer gets a larger average subsidy than an EU one, because there are fewer of them.
– the US is committed to the Doha multilateral round where agricultural liberalisation is central;
– however it will not be held hostage to a single negotiation, and is involved in numerous bilateral trade negotiations;
– there would be overall wins for American agriculture but some sub-sectors would lose out;
– although the Americans are not pursuing a free-trade agreement with China, it is a priority;
China is their fifth-largest – and fastest-growing – agricultural export market.

Except for some subdued comments in Zoellick’s formal paper, there was not a single reference to the case for free trade. The agriculture congressmen are as happy to exploit American consumers and taxpayers as overseas markets. The US approach is old-fashioned, self-interested mercantilism: agricultural exporting is a good thing, importing is bad. But that is no different from their European and Japanese competitors.

* Products for tariff free entry including french fries . I take it that Congress has abandoned ‘freedom fries’.

Don’t Tell Anyone

International experts give New Zealand’s economy the thumbs-up, but the media fail to bring it to public attention.
Listener: 29 May, 2004.

Keywords: Growth & Innovation; Macroeconomics & Money;

A Fulbright New Zealand grant enabled me to visit a number of research colleagues in the US, including the IMF team that visited New Zealand in February. The International Monetary Fund has a programme of annual consultations with its member countries in which the economy and economic management are reviewed. The focus of our Washington meeting was on some mutual research interests, but the team mentioned that their New Zealand review would be published the following day. Early the next morning, I scanned the websites to see what our journalists made of the report.

There was nothing on the New Zealand Herald’s www.herald.co.nz, and the only reference on www.stuff.co.nz (based on the Dominion Post and Christchurch Press) was “IMF urges better bank monitoring”, which proved to be the summary of an appendix to the appendix of the report. TVNZ’s website, (www.nzoom.co.nz) had Reuters’ summary, but it did not capture the core of the report that I picked up from the IMF later that day. So, since you probably missed it, here is its executive summary. The bold type is in the original:

The New Zealand economy has continued to respond strongly. Real GDP growth moderated to three and a half percent in 2003. Domestic demand remained buoyant owing to the strength in net immigration, solid employment growth, the wealth effects from rising house prices, and real income gains from the New Zealand dollar’s substantial appreciation since the end of 2001. Net exports, however, acted as a drag on the economy. The unemployment rate declined below five percent to a 16-year low, while inflation fell to the lower half of the official one to three percent target range.

Growth is projected to ease further to three percent in 2004. However, the outlook is subject to considerable uncertainty, with the economy operating at a high level of resource utilisation, slowing net immigrations, continued strength in domestic demand, an improving world economy and the spectre of further currency appreciation.

The … Fund broadly agree[s] on the settings for macroeconomic policies. In the near term, the challenge for monetary policy will be to assess the countervailing pressures on inflation. The staff support the Reserve Bank of New Zealand’s decision to cautiously wait and watch the data to see whether further monetary policy changes are needed.

The fiscal position remains strong and the stance of fiscal policy is fundamentally sound. The recent improvement in fiscal prospects provides some room to introduce some new fiscal initiatives. [This was written before the May Budget.] However, as the government recognises, the scope for additional spending is limited, and continued prudence and discipline in making spending decisions needs to be maintained. The government has begun to take action to address the fiscal implications of population ageing, including partial pre-funding of future pension liabilities. Consideration should also be given to possible parametric reforms in the pension and healthcare systems. [“Parametric reform” is jargon for changing the criteria for eligibility – such as the age of entitlement to New Zealand superannuation – and the levels of benefits. So they are not challenging the structure.]

Further strengthening the growth performance remains a key goal. Government efforts in welfare and education reforms and expanding New Zealand’s links with the rest of the world should contribute to enhancing growth. [I would have also mentioned infrastructure and technology enhancement.]

New Zealand’s financial sector has a high degree of short-term stability and an overall sound outlook. The main recommendations of the Financial Sector Assessment Program aim at preserving stability in the medium and longer term in the context of the country’s disclosure-based regulatory regime and the high share of foreign ownership of the banking system. [The IMF may not have been criticising the policies of the previous Reserve Bank governor (now leader of the National Party), but expressing a worry about all the world’s banks, while acknowledging some peculiarities in our financial system regulation. It is certainly not saying that our banks are particularly problematic.]”

So, it was a very favourable report, perhaps more than I would have given – perhaps more than even the Minister of Finance would. Given that the IMF sees so many disasters, perhaps when it sees an economy that is well managed and performing well it tends to glow.

One can’t help wondering whether, had the IMF report been more critical of the state of the economy and the quality of economic management, our newspapers would have given it front-page headlines. The IMF team remarked how transparent the New Zealand Government system was (implicitly comparing it with many others), so there are no restrictions on access to the report. But transparency is a fat lot of good if the newspapers don’t bother to tell the public.

830 New Zealanders (review)

A STRANGE OUTCOME: The remarkable survival of a Polish child by John Roy-Woljciechowski and Allan Parker.

Listener: 22 May, 2004.

Keywords: Miscellaneous; Political Economy & History;

One of the proudest letters any New Zealand Prime Minister wrote was by Peter Fraser in 1943, beginning, “With reference to our discussion concerning the reception of Polish refugee children in New Zealand … I have to inform you that the New Zealand Government would be very willing to afford the hospitality in New Zealand to a total number … of 500-700.”

In fact we took 830, including 10-year-old Jan Woljciechowski, who later changed his name to John Roy (the latter being the shortest name he could find in the telephone book). As he tells it in A Strange Outcome, the story of how Jan got here is gripping.

He was born in Poland and his area was taken over by the Soviet Union in 1939 when the country was divided with Germany – an event starting World War II. His father was immediately shot by the Russians, although six-year-old Jan was not to learn this until years later. Shortly after, the rest of his family – except for the eldest, who escaped to German Poland – were shipped to a harsh Siberian work-camp. And there they would have died, except that Germany invaded Russia. The Soviets, wanting the support of pro-Polish Britain and the US, shipped the Poles to the warmer south, and thence to Persia. A few countries then took the children, although only New Zealand and South Africa insisted after the war that they were not automatically repatriated, but could make a choice.

In our case, most stayed. As did Jan and his twin sisters, Maria and Krystyna. Their mother, to whom the book is dedicated, “having sacrificed her life for her children”, died in the Soviet Union before they escaped. Later, Boleslaw (Bob), who had got lost on the way, joined them.

The second part of John’s life in New Zealand is not nearly so gripping. He gets married, has six children, obtains a university accounting degree, works his way through a number of small businesses, restructures others, is involved in the takeover of Mainzeal, and has the good luck to be cashed up, rather than holding shares, when the sharemarket collapsed in 1987. In 1994, 50 years after arriving in New Zealand, he retires wealthy.

The third part of the book returns to the themes of the first. John becomes the honorary Polish consul and finds, in Poland, his eldest brother, Stanislaw, who also endured hardships, for the Germans were no more kindly occupiers than the Russians. Alas, the reunion does not quite work despite migration to New Zealand – the distance between them was too great. But things go better with eldest sister Amelia, who married an Iranian Muslim. The family farm, now in the Ukraine, is under the fallout shadow of the failed Chernobyl nuclear power station.

The book helps corrects our Western European perception of recent history, by opening up the more turbulent Eastern European front. Much of it is a good read, although some of the writing is florid and the metaphors extravagant. Unfortunately, there is no index, or references, and not all the historical facts seem correct. The first part could have done with a map.

Within A Strange Outcome, there is an issue to be teased out. The guests at the wedding when John marries Christchurch-born Valerie were “New Zealanders and Poles”. But surely the Poles there were also New Zealanders, just as surely as Jan/John Woljciechowski/Roy is one. About 2000 New Zealanders described at least one their ethnicities as “Polish” in the 2001 census. It is easier to be a Pole in Poland, but over the years they have scattered all over the world while maintaining a Polishness; what does it mean to be a Polish-New Zealander?

We can incorporate other ethnicities into New Zealand, as Woljciechowski’s history demonstrates. But our biculturalism treats all Europeans the same. Jan’s story, touching on the genocide of Germans, Russians and their allies, and Jews as well as Poles, shows they are not. How right Fraser was to take the 830 of 1943, and let them stay.

Rgdp And/or Rgdi: the Impact Of the Terms Of Trade

This is an addition to The Impact of International Price Discrepancies on PPP-adjusted GDP and expands on material in Estimating Production and Income Across Nations: Reconciling the Differences: the New Zealand Experience .

Keywords: Statistics;

While the nominal output of an economy, usually called ‘Gross Domestic Product’ or GDP is exactly the same whether it is measured by what is produced or how it is disposed – on the production side or the expenditure side of the economy. This occurs because the incomes the expenditure generates exactly matches the outlays (including investments) the incomes finance. However this mathematical congruency does not apply when a different set of prices is applied to the production and expenditure sides of an open economy, even if the prices are consistent. The difference arises because the goods and services consumed in an open economy differ from that which is produced because some of the domestic production is exchanged for foreign production, that is it is exported to in exchange for imports. The ratio of the exchange values can vary, and that leads to the difference when, for instance, constant price GDP estimates are made over time. This exchange ratio can be measured as the ration of export prices over import prices. Note that the exchange rate does not directly influence the terms of trade ratio, providing the prices are measured either in the local currency or the international currency.

The difference between the two over time has long been understood in New Zealand, which is a small open multi-sectoral economy much prone to changes in its terms of trade as the following Chart shows. There can be substantial changes in the terms of trade both on a year to year basis and secularly.

Chart 1

The issue was important practically in the 1950s and 1960s when the Court of Arbitration made a General Wage Order, which changed all the award wage rates in the economy. There was no express reference to the terms of trade in the law guiding the court but it was required to take into consideration ‘any increase or decrease in productivity and in the volume and value of production in the primary and secondary industries of New Zealand’ (as well as changes in consumer prices). (See In Stormy Seas p.93) How then to measure productivity? To simplify, it could be measured as volume GDP per unit of labour input, in which case the different measures of volume become significant. In any case workers were keen to a share any benefit from a rise in export prices, while businesses were keen to share their fall.

The resolution was to have two measures of volume GDP (or in those days GNP). Today they would be called RGDP and RGDI, although the latter was then called ‘effective GDP’. RGDP was calculated on the production side, indicating what had been produced in constant prices. RGDI, calculated on the expenditure side, was a measure of the purchasing power the production generated. It differed from RGDP by valuing exports in terms of the imports they would purchase. The relationship, ignoring the details of the price bases, between them is

RGDI = RGDP + (value of exports)/(import price index)

or

RGDI = RGDP + (volume of exports)* (terms of trade)
= RGDP*(1 + (volume of exports/RGDP)* (terms of trade)). [3]

In an economy with exports as a low proportion of output, and not prone to major changes in its terms of trade, the difference between RGDP and RGDI would be small. But in an economy of New Zealand’s characteristics the effect is not insignificant

Chart 2

Chart 2 of the ratio of RGDI to RGDP shows an overall pattern of a downward trend in the ratio, implying that RGDI has grown more slowly that RGDP by about .1 percent a year. The downward trend reflects that New Zealand had faced deteriorating terms of trade in the post-war era. (There were two main drivers. The largest traditional export, wool, was undercut by synthetics, and the other two traditional exports, meat and dairy products – still the largest good exports today – are subject to widespread international protectionism including restrictions of access in affluent markets and dumping by producers in those affluent markets into third markets. The effect is that RGDI has grown less than RGDP in the post 1950 era by about 5.5 percent.

There is considerable variation around this postwar decline, reflecting swings in the terms of trade. The standard deviation of the year to year changes is 2.0 percent compared to an average annual change in RDGP and RGDI of 1.5 and 1.4 percent respectively. In about half the years the growth of RGDP and RGDI diverged by more than their trend growth rate.

Thus for New Zealand the distinction between RGDP and RGDI is important in the short run, and the long run. The production story is quite different from the income/expenditure story.

Does PPP-adjusted GDP measure RGDP or RGDI?

The New Zealand divergence may be large for an OECD country (although Australia and Norway may be comparable). Even so, whenever price adjustments to GDP are made we need to ask whether the resulting measure is conceptually RGDP or RGDI.

In the case of international comparisons involving GDP adjusted for differences in purchasing power parity, the practice is to calculate the measure on the expenditure side. It therefore corresponds to RGDI. This is not an unimportant point, since most volume GDP statistics are conceptually derived on the production side.

Does this matter? It is well known that PPP-adjusted measures do not appear to track through time very well. Could the effect be from using RGDP for the track rather than RGDI?

To explore this issue a comparison was made between the 19990 and 1999 OECD estimates for PPP-adjusted GDP.

In 1990 PPP-adjusted GDP estimates were estimated for the 24 OECD, although Germany has to be omitted for the 1999 comparison because of the merger with East Germany shortly after. Table 1 shows the 1990 GDP figures, and the projections as to what they would be in 1999 based on the OECD reported increases in RGDP, and RGDI.*

[*RGDI was calculated from the reported terms of trade change over the period and the proportion of exports in nominal GDP in 1995 (see equation 2). This is only an approximate estimate, and could be refined if the data was available. A particular worry is that the terms of trade are only for goods, whereas service exports are becoming significant and have a different track to goods prices.]

Table 1: 1990 and 1999 Volume GDP Levels

YEAR 1990 1999 1999 1999 1999 1999
PPP Prices 1990 1990 1990 1999 1999 1999
Country Actual RGDP
(est)
RGDI
(est)
RGDP
(est)
RGDi
(est)
Actual
Australia* 310492 420583 406784 486174 467417 464509
Austria 144791 171778 168657 198567 193796 206371
Belgium 18511 215917 22705 249590 255900 250289
Canada* 580129 702562 695906 812129 799634 800267
Denmark 98002 123121 120606 142323 138583 148020
Finland* 93406 108236 107646 125115 123712 120016
France* 1113559 1291264 1293071 1492540 1485809 1337208
Greece* 84339 101087 116582 116852 119555 165168
Iceland* 4806 6105 6328 7057 7168 7618
Ireland* 42251 73783 71406 85290 82050 96172
Italy* 1044822 1162647 1176405 134965 1351754 1369422
Japan 2478058 2731340 2816721 3157300 3236566 3139149
Luxembourg* 8345 12809 13502 14806 15515 18622
Netherlands* 2666743 335623 347406 387964 399189 415578
New Zealand* 52053 63256 62442 73132 71749 71436
Norway 77323 104081 102095 120313 117313 128529
Portugal* 93189 116509 117349 134679 134840 169180
Spain* 519652 631479 642625 729959 738411 748959
Sweden* 165646 184239 184729 212971 212264 206387
Switzerland* 161398 169079 176348 195447 202634 204036
Turkey* 297133 416890 414727 481905 476544 389689
United Kingdom* 1035724 1224127 1196708 1415033 1375083 1375044
United States 6124836 7808032 7835519 9025715 9003438 9137277
TOTAL (23) 1498108 18174556 18283663 21008926 21008926 21008926

* = RGDI gives a better projection than RGDP
underline indicates economies in which the projection is more than 9 percent in error.

(The table is constructed as follows. The ‘Actual’ columns (2 and 7) are the PPP-adjusted figures as reported by the OECD for the 23 relevant countries. Note that the first is in 1990 prices and the last is in 1999 prices. The 1990 Actual was then increased by the reported RGDP growth (column 3) and the RGDI growth (column 4) to give estimates of 1999 GDP but in 1990 prices, so they are not comparable with the 1999 Actual.

We do not know the actual increase in prices between 1990 and 1999, so we assume that the increase over the two periods was exactly enough to increase the aggregate GDP for the 23 countries to the level in 1999. (Insofar as this assumption is wrong, this adds a further source of error.)

For 16 starred countries the RGDI figure derived from the 1990 base is closer than the RGDP figure. For 7 the RGDP projection is superior. (I also tried the assumption that the US (rather than 23) price inflator was correct and the EU (rather than the individual 23) price inflator was correct. Neither made a great difference to the outcome. Nor did projecyting to 1999 from 1993 or 1996.) This gives a little support to the argument that PPP-adjusted GDP is a RGDI conceptual measure, although the case is not conclusive.

Far more importantly, however, the exercise suggests that the 1990 PP-adjusted GDP projected by either volume GDP growth is not a very good predictor of the 1999 figure. In the 5 italicised countries in the table, the error is in excess of 9 percent. Among the remaining 18, the standard deviation of the error is 4.6 percent for the RGDP projection and 3.6 percent for the RGDI projection.

We conclude then that while there is a case that RGDI projections are superior to RGDP projections, supporting the analytical proposition that expenditure side PPP-adjusted GDP is analogous to RGDI, there are other factors which reduce the usefulness of projecting PPP-adjusted GDP from past years. Insofar as these factors are measurement errors they will be eliminated with time. Indeed, some appear to be ‘start-up errors’.

But this paper’s concern with the RGDI versus RGDP difference leaves open the possibility that there may be conceptual errors too. That analysis belongs to another paper.

Go to top

The Determinants Of GDP Growth Rates: Reviewing a Study

Keywords: Growth & Innovation; Statistics;

Sources of Economic Growth in New Zealand: A Comparative Analysis is a paper attached to the latest IMF review of the New Zealand economy, prepared by Abdelhak Senhadji who was one of the IMF review team. It is on the IMF website After reviewing the record of New Zealand’s slow growth performance it presents a (reduced form) econometric equation which attempts to provide quantitative estimates of various influences on New Zealand’s poor performance. This paper reviews the study.

Notes: 1 . The paper is in a preliminary form and will be prepared for publication. Its writer saw an earlier version of this paper, and will it into consideration for revision. He reminded me, though, that sometimes I offer an impractical counsel of perfection.

2. The paper’s disclaimer that ‘it is important to stress that the results need to be interpreted with caution given that the relationship between the explanatory variable and GDP per capita growth in the estimated equations is not necessarily causal.’ While keeping the caveat in mind, I propose to proceed as though the causality is there.)

The Data Set

The data set is derived from a panel of 21 OECD countries for the period from 1971 to 2002, some 630 observations in all, the individual data items mainly coming from an OECD data base. How adequate is the data set?

But to begin with a methodological problem, which is not so much about the equation as about its use. The equation may find regularities across the panel of countries, but that does not mean it is necessarily useful for examining one or a subset of the data points in the panel. In particular the application to a single country may be inappropriate. My comments, which are about the relevance of the results to New Zealand, must be seen in this context.

The OECD Data Set

This data set is one of the best quality in the world, and I propose not to quarrel with it. It should, however be noted that very often National Accounting data for the December (calendar) year T is in fact for the March year T+1 in the case of New Zealand.

The Choice of Time Period

The time period beginning in 1971 reflects what is available for the OECD, but is unfortunate for New Zealand, because it experienced a major terms of trade structural shock in 1966 which the economy spent the next decade and more adjusting to. As I have said in another context, examining the New Zealand economy from 1971 is like studying the economy of Hiroshima from 1950.

Because of data base limitations, we cannot do much about the beginning date. But we need to be cautious about applying the resulting equation to New Zealand.

The Country Panel

The more I look at the OECD the more I am struck that there are two sorts of economic growth. While most grow at roughly the same ‘cruise’ rate as the rest, there are a handful which experience ‘turbo’ growth. Turbo growth is characterised by very rapid growth from a low level of per capita GDP, often doubling GDP in a decade. However, once the level of per capita output reaches that of the top countries, economic growth rates level at the cruise rate and so the economy joins the rest of the OECD. Examples include Germany in the 1950s, postwar Japan to 1990, Ireland and Spain in the 1990s, many East Asian economies including Korea in the 1980s and 1990s. Cruise growth is when the economy joins the top OECD bunch measured by GDP per capita (and where there maybe considerable doubts of exact rankings because of measurement problems). At this point the growth rates are similar and presumably so are the determinants of the growth rates.

Every country wants to instigate turbo growth, but the evidence is that once they join the throng at the top of the rich OECD this does not happen

The econometrics usually allows for this by the convergence effect (discussed below) but in my view that is inadequate. Turbo growth is fundamentally different from cruise growth. It is instructive that once the economy has joined the cruisers, the policies which seemed so effective under turbo conditions become as ineffective as they are for other cruisers. Turbo growth needs to be studies separately. My guess is that is usually depends upon the rapid absorption of underutilised resources (including underutilised skilled employed labour as well as unemployed labour) and the import of quality technologies (and often foreign capital).

The “New Zealand problem’ may be posited as to why New Zealand has not maintained a cruise growth rate in much of the post-war era, but has tended to be below it on average. My research shows that New Zealand has usually cruised at a similar rate to the rest, except on three or four occasions it stagnated for long enough to cause its relativity to other cruisers to change. I argue that these occassions are associated with a major shock to the external sector, either a fall in the terms of trade or a rise in the real exchange rate (both of which are equivalent to a fall in the profitability of the tradeable sector.) Whatever, the issue which arises out of the New Zealand problem is to compare New Zealand with other cruisers, not with the turbos. New Zealand’s turbo growth experience was from 1935 to 1945. The issue of turbos versus cruisers is a separate research project which does not particularly involve New Zealand. The New Zealand problem is why it was a slow cruiser.

Consequently, my preference would be to exclude from the panel countries Ireland, Japan, Korea and Spain (and possibly Norway because of the impact of oil finds on the economy). The easy prediction is that the ‘convergence effect’ will no longer be econometrically significant. The interesting question is whether any of the other coefficients will move.

Equation Specification

The equation consists of an independent variable change in (log) per capita GDP , which measures the GDP per person growth rat, with more than 13 independent variables discussed below.

Note that when the independent variable is a also change variable, say the change in (log) X, then the relationship can be integrated back and discussed as the level in (log) per capita GDP affected by the level of (log) X, so the regression coefficient is the elasticity between the variables (before logging). This is the form that I investigated. However the data in my equation was co-integrated order one, so I in effect estimated a similar ‘change’ equation.

Change in (log) per capita GDP: The difficulty with this variable is that the theory would suggest that rather than per person, it would be more appropriate to divide GDP by per worker, or better still, per hour worked, so that labour productivity is being measured (that being the relevant variable from the production function). The first is available in the OECD data base, but the available hours worked series are not reliable (and may not cover the whole period).

Additionally, the theory – confirmed by Steve Dowrick econometrically – says that (relative) population growth has an impact on GDP . Omitting this variable may cause population bias.

Now follows the independent variables.

(Log) GDP per capita in 1971: This is a levels variable. Its function is to test the convergence hypothesis, that is that poor economies grow faster until they catch up to the rich economies. I suggested earlier that this is a proxy for turbo performance, and it would be better to deal with that phenomenon separately.

Change in (log) employment: as mentioned, it may be theoretically more satisfactory to include this as a part of the dependent variable.

Change in (log) quantity of capital: while this is a theoretically correct variable to include (although some would think it should be included in a dependent variable which would better be measuring total factor productivity). However I have some concerns about its measurement.

To give a simple anecdote, when the price of oil rose in 1974 Japan quickly closed down most of its oil-fired smelters, which while not technologically obsolete were priced out of the market. However in the normal way capital is measured those smelters would have remained in the estimates of capital stock until they were slowly depreciated out. In the case of Japan such events may have be so small relative to the total as not to markedly effect aggregate capital stock, but in the case of New Zealand various events in the period were sufficient to affect the total. These include
– the dramatic collapse in the price of wool in the late 1960s which made parts of the capital invested in sheep farming obsolete;
– the removal of border protection in the 1980s and 1990s, which made parts of manufacturing capital obsolete;
– the fall in the price of oil in the mid 1980s which made obsolete parts of the gas-based petrochemical industry developed in the early 1980s.

Probably most of these early obsolesences had worked their way out by 2002, but the profile of available capital stock over the period does not the actual New Zealand measure.

It should be noted that the sum of the estimated coefficient on capital and the coefficient on employment come to between .32 and .35 in the four equations. That means that a 1 percent rise in employment and capital would raise output by only .35 percent at most.

Inflation: The inflation variables (explained below) are measured by the CPI. I am never sure the of relevance of this measure, since the CPI is not a measure of production inflation, it being greatly affected by import prices. (The path of the New Zealand CPI shows considerable divergence from that of GDEF, the GDP deflator.) Since a GDEF is available in the OECD data base,, and it is the relevant production side variable, why not use that?

The equation uses two inflation variables, because it believes there is a curvilinear relationship between economic growth and inflation. While I am not antagonistic to that hypothesis, it is perhaps unfortunate the way it was tested (even aside from the wrong price measure). It assumed the turning point was an inflation rate of 3 percent p.a. and then had a linear function on both sides, instead of putting in a quadratic function. For the record, the regression estimates suggest that increase of inflation from 0 to 3 percent p.a. would add .6 to .8 percent to annual GDP growth.

However because of the asymmetry, inflation at 10 percent p.a. would give as much growth as inflation at 0 percent p.a. I am not sure I believe that, but even so it suggests that the 1 to 3 percent inflation target is wrong and a better one might be 2 to 6 percent p.a., with a ‘midpoint’ of 3 percent p.a.

I worry whether it makes sense to combine the high inflation era of the 1970s and early 1980s with the low inflation era which followed. It is possible that a dummy variable splitting the period into two would do as well or better. In some respects for a small country may be concerned more with the relative inflation rate to other OECD economies.

Savings Ratio: I have not spent enough time on the OECD measure of the national savings ratio to comment on this independent variable. Since it includes public savings, and assuming any Ricardo effect is negligible, an implication is that the New Zealand government running a 7 percent of GDP budget surplus seems to be adding about .2 percent p.a. growth to GDP. (I will not comment on the implication of the US fiscal position.)

Change in (log) Relative Unit Labour Costs: Again I am not sure how robust this measure is (since if we dont have a good track on hours worked, how can we have one on the hourly wage?). The regression estimate suggests that a ten percent annual wage hike reduces GDP growth by about .5 percentage points, a figure which many unionists would find attractive.

Change in (log) Terms of Trade: This variable is theoretically justified and significant. However its effect seems very small, for it says that a 10 percent reduction in the terms of trade will reduce the level of GDP by about .2 percent. In the case of New Zealand that is almost certainly too small. (I have independently estimated the impact is closer to 6.2 percent).

The trouble may be that there is no lag structure in the model, for a terms of trade shock may take effect over a number of years (and indeed initially be perverse in the case of livestock slaughter). It is also possible that the effect is non-linear. In particular the New Zealand economy has probably accommodated to the steady but annually small decline in the terms of trade for meat and some dairy products. It is the big shocks which have upset it.

The estimation included ‘two dummy variables for the oil shocks in the 1970s’ but not one for the reverse oil shock of 1985. The estimates are not given so the magnitude cannot be commented upon. They probably need to be thought of as system shocks rather than terms of trade ones, since oil price changes already appear in the terms of trade. (This might be the reason for omitting the 1985 shock.) In some ways an oil price shock to the world is analogous to the wool price shock to New Zealand.

If the terms of trade are a relevant variable, then so too is the real exchange rate, since there are different aspects of the profitability of the export sector. (They are different because the real exchange rate includes the price of non-tradeables, which is not in the terms of trade, and because it treats export and import prices together rather than in ratio.) I have used for the real exchange rate the ratio of GDEF (GDP deflator) divided by the harmonic average of the price of exports and imports, which is available from the OECD data base. In the New Zealand case the effect of the rising real exchange rate seems important (indeed to my astonishment, more important than the terms of trade in the long run). (See External Impacts and the NZ Economic Growth Rate. ) It will be returned to below, both in the discussion of the New Zealand dummy and in the discussion on mis-specification.

It is also appropriate to put on record an issue which has begun to worry me (and others). The OECD terms of trade applies to merchandise exports and imports only. How are we to allow for the rising proportion of services in international trade?

Share of Government Consumption in GDP: The trouble with this variable is that even though it omits transfers (which seems wise given the complicated but differing ways that they impact in different countries), different countries have different conventions in the measurement of government consumption. In particular, New Zealand levies its GST (a Value Added Tax) on all government consumption in exactly the same rate as it levies it on private consumption. This may have the effect of artificially raising the New Zealand ratio by 12.5 percent or about 2.5 percentage points of GDP relative to many other jurisdictions. However the effect of the ratio seems small. (It is unclear what the units of measurement are, but if they are a pure ratio, a country with a 1 percent of GDP higher spending ratio would have its growth rate reduced by .00002 percent p.a., if it a percent – as hinted in Table 2 – it would be .02 percent, which makes some contribution to explaining the dummy and distance effects described below).

Tax Variables: Two tax variables are included – the highest marginal individual and corporate tax rates. Again depending upon the way each variable is measured, their effect may be very small.

Openness: This variable is measured by the ration of exports to GDP. While this does not directly affect New Zealand, a number of countries are entrepot centres – importing and exporting the same products. That seems to me to be quite a different activity to what happens in NZ. Either the variable should be adjusted for re-exporting, or perhaps treated as non-linear.

There is also a deeper problem here which I have not seen addressed. On this measure America would appear to be a relatively closed economy. But each of the states of the US would be relatively open. On the other hand, individual states of the European Union are treated as separate observations, which gives the impression that Europe is more open that the US. How to deal with this aggregation problem?

(The point here is not to challenge the notion of openness leading to growth, although the effect may be curvilinear, in the sense that a more open economy is likely to grow faster – at least if it is small. The issue is how to measure openness.)

I am surprised that openness has been seen to lower New Zealand’s GDP growth rate. By the mid 1990s the export to GDP ratio was about 32 percent, above the (weighted) OECD average of 19.5 percent (and the US of 12.5 percent).

Other variables: the oil shock variables have already been mentioned. There is also a time trend and an adjustment for the business cycle.

There is no indication whether the time trend is econometrically significant. Presumably it refers to a belief that there is a secular slowing in the average cruise growth rate of all the rich OECD. However some would argue that while that may have happened in the 1970s and 1980s there was some growth acceleration in the 1990s.

The report mentions that ‘all variables which are business cycle sensitive have been pre-filtered with the HP filter to remove business cycle frequencies.’ Unfortunately in New Zealand there is no single business cycle frequency., the length of the cycle varying between two and a bit and almost seven years.

The New Zealand Dummy: In two of the four equations a dummy variable for New Zealand is added. It suggests that New Zealand tends to grow slower than the average OECD, after adjusting for all these other effects, by about .5 per cent p.a. However a similar dummy is not included for any other country. This leads to the next variable, but as explained below, we are on dangerous methodological grounds.

Distance: Table 4 it suggests that Australia and the US are distant but Canada is not. I suspect there should be an adjustment for tho countries which are themselves ‘economic centres’.

There are two methodological concerns with this distance variable. The first is that it is not at all clear how distance affects the growth of GDP. It is easy enough to give an explanation, as to why the costs of distance may lower the level of GDP, but the connection to growth is much less obvious and needs to be explained.

Second, the way that the distance variable is introduced is uncomfortable. The econometrics found an anomaly of New Zealand’s behaviour, via the use of a dummy variable (but it did not check whether any other country was also anomalous). It then, in effect replaced the dummy variable by a pseudo-dummy which has many of the characteristics of a dummy variable since it is constant throughout the period impacts, largely on a single country New Zealand (but also Australia), and which seems mis-specified. However no other possible variables are tested – I would predict that the proportion of the population who play rugby is likely to be about as equally effective. But having identified one pseudo-dummy it is easy enough to identify others. (It would also be appropriate to redefine the varibale so that large economies are defined as close to themselves.)

In practice the difference could be due to measurement difficulties (recall the problem of the measurement of government spending) or an omitted variable. In the latter case a candidate must be the real exchange rate, because it is difficult to explain the course of the New Zealand economy from the late 1980s without it.

What seems to be happening here is that there may be an omitted variable, but the distance variable is far from proven. We turn now to specification problems.

Specification Problems

Omitted variables

The theory of econometric mis-specification concludes that omitting a relevant variable is likely to bias the remaining parameter estimates, while including an irrelevant variable will not. Omission, then, can be a very serious problem.

Among the potentially important variables that appear to be omitted are:

1. Relative population growth;
2 The real exchange rate;
and possibly a
3. A business cycle or capacity utilisation variable (although there may be no suitable candidate in the OECD data base and the filtering procedure used may be the best available, if markedly inferior).

Mis-specified variables

Among the improvements that might be made to the variable specifications are:

4. Scale GDP by employment or hours worked instead of population.
5. Use GDEF (the GDP deflator) as the measure of inflation, and put it in as a quadratic form so that the ‘bottom’ is not predetermined.
6. It may be appropriate to include lagged variables.

Additionally there are other ideal improvements, but there are no suitable data series.

Observations

As already mentioned the turbo economies should be dropped from the panel (or at the very least other regression runs should be done without them).

And always the counsel of perfection is to obtain longer data series, if that is possible.

Estimation

The estimation procedure seems to be ordinary least squares. It covers variables which are co-integrated to degree zero and one. The likely effect of this mixture may be that the standard errors of the regression coefficients are biassed down, so they seem more precise (and significant) than they are.

I suspect this is so because so many of the parameters are tiny, but significant.

Conclusion

This is written from the perspective that the original report represents progress, and that by subjecting it to rigorous review, with positive suggestions for improvement, further progress can be made.

Even so, the methodological question of the usefulness of the equation to understanding New Zealand remains. In particular it seems to me that it sheds little light on the following questions:

1. Why did the New Zealand growth rate slow down at the end of the 1980s so that for five successive years there was a reduction in the GDP per capita?

2. Why was there a recovery of the growth rate to more normal levels in the mid 1990s.

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Nor Any Drop to Drink: Should We Be More Systematic with Water Property Rights?

Listener: 15 May, 2004.

Keywords: Environment & Resources;

Energy is ultimately the key to sustainability, but the first civilisations were based on water. In some cases, the quality water supplies ran out, perhaps from rising salt in irrigated soil, and the civilisation died. This threat is not peculiar to the past. There are great lakes in the middle of Asia dying from mismanagement, African countries dispute over water from the Nile, and even the US and Australia have major water systems that are disappearing or the soil is suffering from excess salt, with serious economic consequences.

Although their systems have property rights that allow users to draw off water for certain purposes, the rights – often based on a “first come first, served” principle – are typically clumsy and often inconsistent with the hydrology. If they allow the drawing off of more water than is available, then those downstream will suffer, and some entitlements will be ineffective. Australia’s great Murray River is a trickle near the sea. Even if those in charge get the hydrology correct, the purposes for which the water is used are often inefficient.

The same problem can apply to sea fish. In a sombre article in the July 2003 Scientific American, Canadian fisheries scientists Daniel Pauly and Reg Watson describe the parlous state of the world’s fisheries, suggesting that many are in danger of collapsing from overfishing. It is a combination of thinking that the resource is unlimited (and simple – the article presents a fascinating insight into the complexity of fisheries) and failing to regulate the take where the stock is known to be limited. Over the last decade, fish landings have been declining by about 700,000 tonnes a year: about double New Zealand’s total annual catch. Not surprisingly, the world price of fish is rising.

New Zealand is an exception, because we restrict the total allowable catch to sustainable levels, using a system of individual transferable quotas (ITQs). This gives long-term property rights to the fishers, the transferring enabling them to seek the most efficient means of catching. Given the political paralysis that applies to most of the world’s fisheries (because those overfishing are fiercely reluctant to stop), our system of ITQs places New Zealand in a strong position to be a world supplier of premium sea fish. However, we should take no pleasure that this is happening.

We are not as well-placed in regard to fresh water, despite putting considerable efforts into improving water quality, and assessing the sustainable draw-offs from ground and underground water. But we still seem to think that, except during droughts, the supply of water is unlimited, even if it is no longer a boundless sump for our waste. At the same time, the property rights are often ambiguous and inefficient, confining the water to a particular use and/or location.

So, although fresh-water allocation may not be an immediate problem, it is a looming one. We should prepare for that future now, especially as it will give us another long-run international trading advantage for water-intensive foods. The Australians, with their water shortages, are ahead of us (although in some locations it may be akin to introducing ITQs when there are no fish).

Not only should we be cleaning up water quality, we should also be making property rights in water more rigorous. It will not be easy, because the situation varies from catchment to catchment, the performance of councils that manage them is decidedly patchy, and many think that they have a stronger property right to water than the law provides. The outcome should lead to a more rigorous definition of those rights, grandfathering in existing users where practical. But giving to existing users requires tradeability, to enable the transfer of permits to higher valued uses as demand and technology change. The draw-off rules must be clear, but the purpose and location of the use should not be specified, other than what is necessary for hydrological sustainability. The equivalent in fisheries is that we don’t specify how the fish should be caught or what they should be used for.

There is a nervousness about this commercialisation of water. But we are only arguing over at what point in the value chain water should become tradeable. (An onion is full of water, but we don’t restrict its use.) The international experience is that where there are tradeable water rights, water is usually leased only on a temporary basis, although in the long run, we might expect structural change, with more conservation and recycling.

As our demands increase, we may eventually move to the metering of all urban water, too, shifting the charging for water off the rates. There are those who say that water is too valuable to treat this way. Economists say that it is so valuable we should be thinking about how to use it efficiently, rather than wastefully.