Family Poverty and Family Support: a Strategy for the Next Three Years.

Address to the Wellington People’s Forum, 7 September 2002.

Keywords: Distributional Economics; Social Policy.

There is one main fact about poverty in New Zealand, which often gets lost behind a myriad of minor facts, which diverts us from the central issue. The consequence is that attempts to reduce poverty are at best inefficient, and at worst ineffective. That central fact is a substantial majority of the poor are children and their parents. This predominance of children and those who care for them is independent of the choice of poverty line. But to give an illustration, if we use the poverty line based on the deliberations of the 1972 Royal Commission on Social Security – the standard poverty line in the last thirty years – we find at least three-quarters of the poor are children and their parents. It is more than four fifth 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, if we note that in some households in which there are children there are adults other than their parents. The salient feature of poverty in New Zealand is that it is dominated by households with children in them.

The 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.

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.

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

The poor households are not just in state houses or even renting their households. Many poor households are paying off a mortgage.

We have known the salient fact – that poverty in New Zealand is primarily associated with children – for twenty-five years. On occasions there have been attempts to address child poverty: the family assistance packages in the mid 1980s, the package in 1996. But children remain the number one associate with poverty, because we keep forgetting that salient point that poverty is primarily about children, and keep being diverted by minor ones.

We have perhaps a unique opportunity in this parliamentary triennium. I do not doubt the sincerity of this Government when it says it would like to relieve pressure on families. But it has many priorities, and they all pressure it for attention. What makes the situation unusual is that the two flank parties on which the Government depends upon for parliamentary support – the Greens and United Future – both prioritised family policy in their election campaigns. Both, if they keep to their manifestos, will be pressing the government to do something for families. Hopefully the Government will make relieving family poverty one of its priorities.

It faces a severe fiscal problem to do so. I will not spend time today explaining why many of the solutions to the fiscal restraint, such as raiding the Superannuation Fund or reducing the budget surplus are not viable options, for such actions would compromise the growth of the economy. The great importance of growth is not the additional material output it produces, or even the extra funding the government has in hand to spend at the end of the day. Its greatest contribution is to create jobs. The New Zealanders who will benefit most from this job creation, are at the bottom of the income distribution. Economic growth, which requires a prudent fiscal stance, means job growth and that means less poverty.

However, not all New Zealanders will benefit so directly from this job growth. The largest group who will not benefit are poor children. That is why the government needs to actively redistribute some of the gains from growth to those who will not otherwise gain.

The current projections suggest that there will be about $2 billion in the 2005/6 year – three years out – for all the new policy spending over the period.[1] There may be a little more, from improved efficiencies and elimination of ineffective programs. But the net additional spending is $2b (about 2 percent of GDP).

Some of that has to be spent on the health system, some on the education, some on industrial assistance, and some the myriad of other services which government spending promotes. The most which family assistance could possibly expect from the $2b is a quarter of the total, or $500m in the 2005/6 year, which can be phased in over the three years. That will involve it being placed very high on the government’s priorities – much higher than has been evident in recent years.

Given there are about one million New Zealanders who are under the age of 18, the sum of $500m amounts to about $10 per child per week if it was spent as a universal family benefit. I support universality, but the child poverty problem is so urgent and so unaddressed the little funding available has to be targeted. What I want to propose is that instead of a family benefit for everyone, the amount be targeted on the poor. In particular, it should be possible to give the 30 percent of children in the poorest households, the sum of $20 a week, and then to bleed the payment out so that the next 30 percent get a portion of that $20.

The basic policy change being advocated here is an additional spending on children of $500m by 2005/6, which is targeted, with the poorest getting an extra $20 a child a week. The design of the targeting is a bit technical because of the household income distribution, but it will not present the officials a major challenge. The fiscal assistance packages that Labour developed in the 1980s offer a good template for the design. (There is also a problem of phasing in the changes. Ideally the first changes should be announced in the 2003 budget, and the first phase be implemented in January 2004, with a full implementation in April of July 2005.)

The targeting needs to be seamless, so that the amount received is a function of family income and the number of children and not whether the family income is from benefits or earnings (so the reform needs to incorporate the family tax credit into it), or whether the family has one or two parents or what is their marital status. That is, we need to target the support on children, and not get diverted by other objectives. Ideally the assistance needs to be delivered via a negative income tax, so we can avoid the nonsense that tax cuts are good but benefit rises are not.

I now turn to some alternative policies, and explain why they are not the same priority for children:

First, what about rises in basic social security benefit levels? Their real value has not been increased since the benefit cuts of 1991, and no doubt they need review. But the priority has to be children, and this proposal will raise the income of every beneficiary who is caring for children. Many other beneficiaries have benefited from getting a job. In the last three years the economy has generated 134,000 jobs and that means many past beneficiaries are working full- or part-time to their, and the economy’s, benefit. Probably the most important reform at the moment is to reduce the heavy impositions from the abatement system whereby beneficiaries who earn face high effective tax rates. That will have to be reviewed as a part of the redesign of family assistance, and could lead to some gains for beneficiaries

It goes without saying there is a need to make effective the special benefit system. It is totally unacceptable that only 15 percent of those entitled to them get them (even if that is double the rate of three years ago). That is not a policy decision, but an operational implementation and the government needs to direct its officials to improve their performance rapidly. Once the system is properly administered, we may see ways in which we can integrate it better into the benefit, family assistance, and other support systems.

What about housing assistance? Housing is a problem, but its resolution is much more difficult than many people realise. The danger is that we spend a lot of available fiscal resources on poorly thought through interventions, and get stuck with something which is not very effective which proves to be an inefficient waste of the precious funds. Housing pressures will be relieved by the proper application of the special benefits system and by the $20 a week for the poorest children.

Should the the minium wage be raised? The trouble is that most recipients of the minimum wage are not in households with children. Whatever the case for increasing the minimum wage or not increasing it, changes will do little for child poverty.

Another proposal is for income-splitting for tax purposes, whereby a married couple average their income, and so pay less tax. My impression is that many people object to this on the basis of its account of family relations, while others support it for exactly the same reasons. However, what ever the merit or demerit of these arguments, income splitting makes the after tax income distribution more unequal. Consider a couple whose sole-earning husband is on the average wage of $36,000 p.a, and a similarly situated couple where the husband is earning double the average wage. The poorer couple get $11 a week from income splitting and the richer one get $103 a week extra in the hand – over nine times as much. So the rich do very well out of income-splitting. So income-splitting does very little for child poverty, while it uses scarce fiscal resources. I am sure the advocates of income splitting do not intend their policies to be pro-rich. They need to do is come up with a scheme which pursues their social objectives in a fairer way.

Is there room for significant income tax cuts? Average real wages have hardly risen in the last three years, in part because the extra created jobs have been at the lower wage end of the distribution. The pressure for real increases is likely to be substantial over the next three years. These can be ameliorated to some extent by income tax cuts, workers thus sharing in prosperity by lower income taxes (and a higher social wage) without compromising the growth strategy by excessive wage demands. The family assistance package proposed here is a tax cut, targeted at the poorest worker families – those with children. It is a start, but is not enough. Hopefully there will be room for some income tax cuts in the 2005 year, especially if the economy does better than we hope.

The social wage will also help. The free primary services to young children reduced the pressures on poor families with sick children – a policy which should be kept under review. And the government’s strategy of increased health prevention and promotion programs, may not immediately reduce the pressures, but will reduce child sickness in the longer run. On the education front the government has to catch up with a backlog of underspending in the 1990s, most immediately for teachers’ pay. But it would be great if it could find some means to reduce pressures on parents for school fees and expenses, especially if that could be targeted at the low decile schools. Another looming fiscal pressure is ameliorating tertiary student loans.

Finally, a word about the proposed Commission for the Family. The idea is rather vague at the moment although it is expected to be established next year. Let me make but two points. First I hope the Commission’s central remit will include the economic and financial status of families, for if family policy does not address family poverty, the financial pressures on the families of New Zealand will undermine all the other concerns of the Commission’s supporters. Second I hope the focus of the Commission will be holistic, looking across all families, and not pathological looking only at poorly functioning families and their problems.[2] We get too obsessed with failure. By ignoring the whole picture we add to the pressures of families which are functioning reasonably well.

We do that in the poverty area. We look as some particular family form or situation which is under dire pressure, and propose poverty responses which ignoring all the other families that are under as great problems. Poor households are not just Maori or Pacific Island families, or single parent families, or families dependent on social security benefits, or those in tenancies. The issue is child poverty, and we must focus on children.

It has been said that this government has put no great emphasis on social reform over the next three years, for its focus will be on economic progress. while it remains severely fiscally constrained. The practical reason for keeping social reform on the back-burner, is that after two decades of stagnation in the social policy area, the nation has not got the capacity to initiate major reforms quickly.

However suppose the government addresses child poverty by a major increase in targeted family assistance. We have the capacity to carry out such a major family policy reform, and the integrating it with the welfare mess left over from the last two decades will enable us to build the capacity to do good social policy in a coherent way.[3] The government will be able to go to the next election saying that it has tackled one of the core social policy issues. If the economy has also continued to created jobs (and given the sort of upskilling process it envisages), the poor in New Zealand will be experiencing a lot less stress. The gaps will have closed, because the Maori and Pacific Island households are more likely to be in poverty and so they will be proportionally greater beneficiaries.

But we cannot be sure that the government will give child poverty the priority it needs. Every government faces conflicting demands for its scarce resources, and it is always swayed by the various pressure groups and how vociferous they are in persuading the public of the justice of their cause – that is what democracy is about.

So who is to speak for children? Not the children themselves who hardly have a public voice (and certainly dont have a vote). Their parents are so hard pressed by the time children demand, compounded by the financial pressures they face, they have not been able to form an articulate public group to press their cause. That is a main reason why child poverty has persisted, despite researchers having identified it as a serious problem over a quarter of a century ago.

The response when the problem was recognised in Britain in the 1960s, they established a Child Poverty Action Group. There has been an active Child Poverty Action Group in Auckland for five years now. But there is no such organisation in Wellington. Is it not a time to remedy this failure?

That is a question I leave this audience to answer.

Endnotes
1. Pre-election Economic & Fiscal Update 2002, p. 37. The figures for individual years are:
2003/4: $500m
2004/5: $1000m
2005/6: $1900m.
2. The policy problem of the focusing on pathology rather than holistically is detailed in my papers Fences and Ambulances: An Economist Looks at Family Policy and Approaching Family Economic Issues: Holistically or Pathologically?
3. The expression ‘the welfare mess’ is due to Susan St John (latest reference?). ‘Entrenching the welfare mess’ forthcoming October 2002 ( with Keith Rankin) . Previous version Quantifying the welfare mess at http://www.geocities.com/nzwomen/SusanStJohn. Her latest contribution is Child Poverty for the Global Peace and Justice Auckland Forum, 2 September, 2002, which – among other things – sets out some of the complications in the current family assistance package.

Other articles on Family Policy on the website
Fences and Ambulances: An Economist Looks at Family Policy July 1992.
Approaching Family Economic Issues: Holistically or Pathologically? October, 1994.
Family Policy: Creative or Destructive? November, 1994.
The Economic Status and Health Project July 2000.
Poor Children February, 2001.

Manure and the Modern Economy: Has Economic Policy Hardly Changed?

Listener 7 September, 2002.

Keywords: Macroeconomics & Money;

Don Brash recently claimed that ‘almost none of the big changes of the late 1980s and early 1990s have been reversed’ and described those who denigrate the economic policies of the 1990s as talking ‘cattle manure’. This may be inappropriate language for the National Party’s front bench economic spokesperson, but the greater worry is that he seems to be keener to repeat the past, than to learn from its mistakes.

The list of policy reversals is impressive. The benighted health reforms of the early 1990s have been almost entirely structurally reversed, even if some of those running the District Health Boards have not always noticed. The back-tracking in the tertiary education sector is taking longer. But the existence of a Tertiary Education Commission, the roll-back of competition, the focus on quality, and the relief of student debt are all reversals. Some reversals are not evident to the public. Science funding has changed dramatically from its intended path of the early 1990s. The impression is there is a serious attempt to modify a raft of changes that damaged the quality and solidity of the public service.

Brash specifically cited that privatisations were not being reversed. The government has not had the cash, otherwise serious consideration might be given to renationalising the electricity sector and railways. Kiwibank has been established, as a replacement to the old Postbank. Air New Zealand was so badly managed by its private owners after the 1992 privatisation, that the Crown had to renationalise it. Electricity and telecommunications commissioners have been appointed to regulate each industry. The government also reversed the ACC privatisation. Fortunately – because the biggest private insurance sector player HIH has collapsed in Australia with unfunded liabilities of over four billion dollars.

Both of the electricity and ACC reforms seemed to break a basic rule of good government policy: ‘if it aint broke, dont fix it’. (They may have both got broken as a result of the ‘reforms’.) Even National is sufficiently ashamed of its Employments Contract Act, with its promise of giant labour productivity gains that never appeared, to announce it will only amend rather than repeal it.

Some of the past 15 years reforms are unlikely to be reversed by this government. It is improbable that border protection will be raised. Labour’s leadership is committed to the open economy, a tradition that goes back at least to Norman Kirk. But there is a difference from the previous government. Tariffs on the clothing and textile industry may be reduced, but not with an overnight raid as happened with cars. Instead, there is a program aimed to get the industry’s productivity up and into products (like fashionware) where it can compete with the rest of the world on merit and high wages. More fundamentally, this government is committed to a ‘hands together’ industrial assistance strategy, most of which would have been inconceivable a decade ago: sectoral indicative planning and cooperation, regional assistance, research and development subsidies, start up support, venture capital …

Brash says there has been no reversal in the macroeconomic framework, with the Reserve Bank and the Fiscal Responsibility Acts remaining intact. One reason is that each is reasonably flexible so they allow a variety of possible policies. Watch how the Minister of Finance, Michael Cullen, modifies the approach again when he signs the policy targets agreement with the next Reserve Bank Governor. It wont compromise the operational independence of the Governor that is the corner-stone of the act, but he or she will have clearer guidelines to operate within. (If anything has compromised the Governor’s independence, it was the swift shift of Brash for Governor to MP. The international reserve banking fraternity is aghast.)

Macroeconomic policy has not had to change because the economy has been flourishing. Virtually any policy works during a boom. The real test will be as the world economy turns down (if the Reserve Bank’s lifting of interest rate does not precipitated an earlier domestic contraction). Do not be surprised if the framework is modified as a consequence.

And sure, as Brash has pointed out, the government has not restored the savage 1991 benefit cuts. It has rejigged housing support, and is making an effort to pay people their benefit entitlements. (Apparently only 15 percent of those entitled to special benefits get it – double the rate of three years ago.) Fiscal prudence and the constraint of tax revenue (despite a small hike in the top tax rate) has given little room for manoeuver. We may see changes in the next three years as funds become available. Expect the major reform to involve family assistance.

It is no surprise that the Labour-led coalition government has not been able to reverse in three years all the liberalisation changes of the last fifteen. In some cases it does not want to. The skill is being able to identify the reforms which worked rather than uncritically accepting that every one was a success.

Brash probably thinks this column is cattle manure. Many readers will agree. They know that manure worked into poor soil, leads to luxuriant vegetation growth – and economic prosperity.

Future Directions for the Ministry for the Environment

On August 27 I was invited to a breakfast which was one of a series of consultations by the Ministry for the Environment on the issues which faced it. After a lively session we were invited to make submissions. I wrote to the new chief executive, Barry Carbon. Subsequently the MfE published my letter in its report back to participants. Here is what I wrote – a little tidied up.

Keywords: Environment; Regulation & Taxation;

Dear Barry Carbon,

Thankyou for breakfast this morning, and the interesting (and entertaining) session that went with it.

You invited written feedback. May I make a couple of comments?

The first I made from the floor, which is that there is a need for the community as a whole to have a better grasp of environmental principles and the related regulatory framework that goes with it. It is important that this message does not get lost in the need for each community having to have a better understanding of the particular environmental issues it faces. My concern is that the particular needs be informed by a background of understanding. While the particular is usually a LGA responsibility (although the MfE can support them) the general is a national responsibility, and properly the Ministry’s. (And of course, as Cath Wallace drew attention to, there are national and international issues which need a much better public understanding too.)

I may say I see a wider issue here, which illustrates your role, which is the public’s competence in science. For instance, I am concerned that the genetic engineering policy debate is severely handicapped by public ignorance of the underlying science. (My best example is that one of our most respected journalists, on learning that there appears to be a human gene which causes violence, asked the scientist whether we should replace it in individuals.) MoRST and MfE need to promote a vigorous program to educate the public in some of the most elementary science that underpins your and national policy concerns. I am not a specialist in this area, but it occurs to me that the two ministries may even fund NZ on Air to commission a series of essentially educational (but also entertaining) programs to lift public understanding. Of course there may be cheaper and more effective methods to deal with more prosaic issues – such as an informed understanding of the practices and processes of the RMA.

The other matter was hardly touched upon at the breakfast, but was simmering there. By way of introduction I am one of those people who are always introduced as ‘needing no introduction’ but as a recent arrival to the country you may need to know I am an economist.

I am concerned that the economic principles of the RMA are getting lost. They are so elegant let me repeat them. I have added some references below.

Ideally the RMA was to make environmental decisions more-market by reducing the transaction costs in the system. But more-market requires the proper allocation of property rights, and so we ended up with a complicated tribunal system to identify them. (The alternative of a sort of Doomsday registry was obviously not feasible.)

I worry that there are various attempts to abridge some of the property rights, in effect shifting them to others. And I worry that the transaction costs under the RMA are becoming excessive (an excess which is being used to promote the abridgement property rights). I did some work for the Ministry of Consumer Affairs, which argued that one of its primary economic functions was to minimise transaction costs in consumer transactions. (I attach a reference to the final report below). It seems to me that while the MFE has many high policy issues it should include in its activities the prosaic one of aiming to minimise transaction costs in environmental transactions. I know this is a big ask, but I hope that it is something which the Ministry will keep constantly in mind whenever it is looking at the regulatory framework for which it is responsible.

I report to you that a number of people said they were impressed by your performance this morning. Best wishes with your stewardship.

Brian Easton

On the economics of the RMA

“Applying More-Market to the Environment”, The Commercialisation of New Zealand (Auckland University Press, 1997) Appendix to chapter 3, p.36-43.

“Is the Resource Management Act Sustainable?” Planning Quarterly, June 1998, p.5-8.

On Transaction Costs in Public Policy

The Economic Context of the Ministry of Consumer Affairs, (Ministry of Consumer Affairs, 1998)

“A New Microeconomic Policy Paradigm?”, The Whimpering of the State: Policy after MMP (Auckland University Press, 1999) Chapter 20, p.223-236.

The Economy and Other Issues: What the Election Campaign Didn’t Tell Us.

Listener 24 August, 2002

Keywords History of Ideas, Methodology & Philosophy; Political Economy & History; Regulation & Taxation

The economic debate was noticeably missing from the election campaign, as the public turned its attention to other concerns. This suggests an economic consensus (almost) arising from the economic prosperity over the last three years, plus an increasingly widespread agreement that economic policy is going in the right direction.

The economy has been doing well, growing slightly faster than the OECD average with modest inflation (below 3% p.a.), lower unemployment (the rate is down to 5.3%), and a strong fiscal position, while the external deficit has fallen from alarming levels (as high as 7% of GDP) into the usual working range (near 3%). Nothing is perfect, and real wages (nominal wages adjusted for inflation) barely rose in the last three years, so workers had to be satisfied with an extra 135,000 jobs and a better social wage from government spending and legislation. They will not be satisfied with such wage growth over the next electoral term.

Because the economy has been doing well, there has been less agitation over the economic policy. The consensus may be deeper. The post-war trend in economic policy has been the opening up the New Zealand economy to the world and the making of greater use of the market mechanism. The economy needs strong export performance to grow, while the public increasingly spends their growing incomes on overseas products, which have to be paid out of export earnings (unless we go down the slippery slope of overseas borrowing). The export diversification meant the economy no longer worked properly with the detailed intervention that characterised the war economy. In any case the public has become diverse too: no central planner can provide the variety of women’s fashion shops that crowd even our smallest town centres.

The policy trend was interrupted by Rob Muldoon’s government which resisted the economic liberalisation, judging – rightly I think – the public preferred the old ways (even if they were becoming increasingly impractical). The 1984 Treasury Post-Election Briefing Economic Management was a moderate call back to the long run trend to economic liberalisation and the open economy. Unfortunately the incoming government overshot into the extremism of Rogernomics and, later, Ruthanasia. The last four years have seen much of that extremism wound back – although some of its ‘reforms’ may be almost irreversible. Meanwhile the public seems to be much more accepting of the open economy and the market mechanism, although the support is tentative and individuals react strongly where the new regime disadvantages them personally.

The bits I did not like about Economic Management were its monetarist macroeconomic policy, and its vague growth strategy. We are still debating the former, currently in regard to the Reserve Bank targets. Meanwhile Treasury has been addressing the lacuna in its growth strategy, although it still has a long way to go. Both issues were hardly touched on in the election campaign.

A consensus does not mean total agreement. But none of Act, the Alliance, or the Greens – who in quite different ways dissent from parts of the consensus described in the last few paragraphs – chose to take their differences to the electors. There were the usual extravagant promises of increases in government spending and tax cuts by parties who had no expectation of implementing them. National’s promised tax cuts were within the fiscal parameters set out in the last budget, although concentrating them on the very top income earners may not have made electoral sense. Act did promise all workers a tax cut, but failed to explain how they would have funded it. That such issues were not pressed was indicative of the lack of electoral interest.

There will be further calls for tax cuts. The most concerted claim comes from those who advocated the policies which stagnated the economy for a decade. They have been unable to provide convincing evidence that lower taxes and lower government spending affect the growth rate by much. There is some research which supports their position and some contradicts it. One of the advocates’ themes is the only OECD economies with government spending below 40 percent of GDP grew faster than 4 percent p.a. (the government’s current target). Unfortunately that 40 percent figure is problematic. New Zealand’s public spending appears high because it includes direct tax on social security benefits and indirect tax on government expenditure. Other countries do not follow these conventions, which lowers their apparent public spending relative to New Zealand’s.

In any case the successes on this criterion are only two countries, while in opposition to the theory there are four low government spending economies with growth rates below the 4 percent p.a. The unbiased observer is likely to conclude that any effects of government spending on economic growth are tiny, and may be in either direction since some spending – infrastructure, research and development and acquisition of worker skills – may enhance it.

The tax debate will not go away, as long as there are people who will benefit from tax cuts. But macro-policy and growth strategy are more important things to debate. Unlike the election campaign, this column will try to keep you informed.

Why Economists Dont Understand Education … but Still Try to Run It

Presentation to the NZARE conference ‘The Politics of Teacher’s Work in Aotearoa/New Zealand’, 24 August, 2002..

Keywords: Education, Governance, Growth and Innovation

Of course all economists know something anecdotally about education, insofar as they, their children and their friends went through an education system. My concern in this presentation is the deep tension between the paradigm economists practise and the paradigm educationalists practise. Indeed, an alternative title for today’s lecture might be that educationalists dont understand economics either. But being an economist I am not competent to give an account from an educationalist’s perspective. That I leave to the audience.

And it is important to acknowledge, as indicated in the subtitle, that economists are deeply professionally interested in education. That interest helps shapes the education system. So it is worth educationalists trying to grasp what economists are on about, and the limitations of their paradigm, in order that they may harness economics for the benefit of education. Indeed, many educationalists have the misunderstood the economics. By recruiting misinterpreted economics to their cause they have frequently done education a disservice.

Education in the Economy

Economist’s interest in economics goes back centuries, but in the late 1950s a couple of innovations provide much of the foundations of economist’s approach since. The first was became known as the neo-classical growth theory revolution. Perhaps the key paper is by the Nobel prize winner in economics, Robert Solow, which showed that increases in output per worker were not simply the consequences of increases in capital per worker. He estimated that only 20 percent of the increases in labour productivity could be attributed to increases in the quantity of capital. His paper described the remaining sources of output, and hence the main source of economic growth, as ‘technology’.
I am using the phrase ‘technical change’ as a shorthand expression for any kind of shift in the production function. Thus slowdowns, speedups, improvements in the education of the labour force, and all sorts of things will appear as ‘technical change’. (Solow’s italics)[1]

Both the science and the education communities were quick to seize upon this ‘technical change’ to argue that their activities were at the centre of economic growth. But Solow’s conclusion is a default. His research shows an unexplained residual in his research which he labels ‘technology’ There is no macro-economic evidence in this research, or virtually anywhere else, that gives any quantitative relationship between the amount spent on education (or research) and economic growth. However, from the time of the Currie report in 1963 it became an act of faith that spending more on education would generate economic growth.

Rich countries do spend more on education than poor country. But they also spend more on furniture. We cannot rule out from such evidence that furniture promotes economic growth. Equally we cannot rule out that education is a consumption good on which a nation spends more as it gets richer.

There is some microeconomic evidence. People with more education and vocational training tend to have higher incomes through their lives than people who do not, following a lower income and additional expenses in their years of training. This suggests that we might think of education as a commercial activity in which the young student ‘invests’ to get a higher (net/after-tax) income in later life. We can calculate the (real) return on this investment. It usually proves to be high, often over 20 percent per annum. The implication is that it is usually commercially wise for a student to acquire additional education and vocational training.

There are a number of problems associated with the calculations – for instance, part of the apparent return will be due to native ability, since the more able students are likely to stay in the education system longer. But, more fundamentally, a return need not mean that the investment contributes to economic growth, any more than a successful payoff on a Lotto ticket.

We can do a different, but related calculation. Instead of looking at the outlays of, and the return to, the student, we can look at the educational outlays of society as a whole (which includes the public spending on the student) and the return to society as whole, which includes the additional taxation he or she pays. Again the return is positive, although usually not as high as for the student. Is society getting a ‘return’ on its ‘investment’?

Neo-classical growth theory says ‘yes’, but that assumes the education process is working like for an ordinary capital investment whose return is measured in market prices which reflect the marginal value of the activity to society. While that seems to be broadly true for many activities – although, there are all sorts of caveats – it seems less likely so for education. Perhaps education is primarily a method of selecting people for jobs, rather than improving their ability to actually contribute to an economy. Last year a Nobel Prize was awarded to economist Michael Spence. An example of his key insight is that a student can signal to potential employers he or she is smart and motivated by achieving academic success in subjects which have little to do the actual job. (MIT economics professor, Paul Krugman, who can never resist a bon mot no matter how unfair, commented ‘a meaner but similar analysis [when Michael Lewis writing in Liar’s Poker] declared that would be-investment bankers studied economics in order to demonstrate their willingness to engage in boring, humiliating activities.’) What is the connection between educational outlays and the graduate’s remuneration in such circumstances? Perhaps the spending is a signal of commitment unrelated to educational achievement, just as a cock’s fine plumage may tell you little about the quality of the bird.

It could be worse. The theory requires that the incomes of graduates reflect the value of the ir activity to the public. But there may be a considerable monopoly element in the pricing, as professions restrict entry and use other devices to maintain high remuneration. Perhaps education is a part of the profession’s conspiracy against the public, in which case the prices they charge and the resulting income are not good indications of social value.

Is Education Only About the Economy?

Moreover, education has benefits which are not easily incorporated into an economic framework. The most disturbing critique arises in John Stuart Mill’s Utilitarianism where he tries to make rigorous the theories of his father James Mill and his father’s mentor Jeremy Bentham.

Mill could see a flaw in the early utilitarian hedonism which underpins so much of today’s neoclassical economics. It assumes that all pleasures were of the same quality. He wrote ‘it is better to be a human dissatisfied than a pig satisfied; better to be Socrates dissatisfied than a fool satisfied. And if the fool, or the pig, are of a different opinion, it is because they only know their own side of the question. The other party to the comparison knows both sides.’ Mill’s critique undermines the welfare propositions of market economics. Even if the positive assumptions of neo-classical theory were approximately true, it is difficult to argue that the growth is necessarily beneficial, since the market ranks all pleasures on the same dimension, so that the demands of a happy pig have exactly the same status as those of an unhappy philosopher.

While differing qualities of understanding – of enlightenment – is central to our liberal notions of education, much of which aims to transform satisfied piglets into dissatisfied philosophers, such concerns were far from the minds of those whose rhetoric is that education promotes growth. There was a practical reason why they did. State provided education was getting increasingly expensive. When the Fraser-Beeby notion of the aims of education were articulated in 1938 the education vote amounted to 2.5 percent of GDP. Today, state education costs almost 6.5 percent of GDP. That education was an investment in economic growth is used to justify this huge increase (although a similar expansion in public spending on health services did not use this justification).

There is another role of education which economists have long known – and forgotten: socialisation. It returned to prominence in the 1990s with the fall of the iron curtain. Expectations of positive economic performance that would arrive with the introduction of capitalism have been dashed, as Russia has collapsed into an ugly regime of economic corruption, still producing less than it did under the communism whose poor economic performance was a factor in bringing the old order down.

What these unsavoury goings on reminded economists is that critical to the success of market capitalism is a whole range of social institutions – interactions, values and understandings – which are difficult to define but are clearly crucial. Sometimes they are referred to as ‘social capital’, sometimes ‘trust’, sometimes ‘civil society’, sometimes ‘social coherence’. It is intriguing how little reference there is in economists’ discussions to education’s role in inculcating these social institutions, especially for the young moving out from the family into the wider society. Were the educational system to focus only on the vocational aspect of its function, and ignore its socialisation role, it seems likely that economic output and, indeed, human happiness would suffer.

The Demand Side Implications of the Economic Paradigm of Education

By uncritically making economic growth as the justification for education, many educationalists were adopting an economic paradigm, the policy conclusions from which they would not like, as the economic paradigm overwhelmed the educational one.

The salient example is in the 1989 Review of Post-Compulsory Education and Training (the Hawke Report) which said that public policy should not distinguish between education and vocational training.[2] As a consequence, tertiary education policy increasingly focussed upon the vocational function of the system to the exclusion of any other educational objective. But what the economy wanted was well-trained happy pigs, who are easier to supply as consumers, and easier to manage as workers. So that the parts of tertiary education which are concerned with enlightenment rather than training found themselves increasingly squeezed.

Moreover, when economic policy was redirected in the 1980s towards increased the privatisation of social activity, the education system was captured by economists and by educationalists who thought that economics was the answer was put under the same pressure to privatise and, where that was immediately impractical, to commercialise. Again it was the tertiary system where the most extreme change occurred. The logic of a commercially driven vocational tertiary system is that students are investing in higher future earnings, the training should be dominated by user pays. Since it is impracticable to fund from private sources on the prospect of a return from additional human capital, the government introduced a student loans scheme. An uncritical adoption of an economic model led to a policy which leaves many educationalists (and New Zealanders) uncomfortable.

The scheme’s logic can be readily extended to all post-compulsory education, including that at secondary school. But why stop there? The human capital model says all education is an investment. Should not all state-provided education be funded on the same basis as tertiary education with all students paying fees funded by loans? The first step might be vouchers which can be used to ‘purchase’ education. Ostensibly they are about making the supply of education more competitive, more efficient and more responsive to consumers. But suppose parents are allowed to top up the value of the state-supplied vouchers with private cash. By squeezing the value of vouchers, the top-ups can be made to increase in value and become more widespread. That will force some families to borrow to fund their children’s education, and so move to the commercial logic of the narrow human capital theory model.

There would considerable political resistance to this, but is there an alternative philosophy? The Fraser-Beeby principle is a good start, with its firm statement that each New Zealander has an entitlement to education. Social entitlements were increasingly abandoned under the policies of the 1980s and 1990s (other than entitlements that could be purchased by private income). Suppose the Fraser-Beeby principle were reinstated. How many years of education would a New Zealander be entitled to? Presumably in a wealthy economy any educational entitlement goes past the age of 16, and involve an entitlement to tertiary education.

The Fraser-Beeby notion of entitlement – the creation of opportunity for education and life paths – has a direct economic element. There is some research – the best I know contrasts Germany and England – which suggests that economic performance may be influenced by the quality of education among the least educationally able. While the top quartile of the two nations have roughly comparable attainment – on certain educational measures – the bottom quartile of German students do considerably better than English students. It is argued that this translates into better performance on the shop floor, because German workers have a better understanding of the technical issues involved. Vocational training in New Zealand seems to follow the elitist English rather than the comprehensive German approach. The cost of that strategy may be poorer economic performance. (This is a topic I am going to be working on over the next year, where I hope to do some comparisons of secondary school attainment.)

Entitlements, opportunity, and life paths do not fit easily with the traditional utilitarian approach which underpins so much economic policy. This economic utilitarianism has been challenged by Amartya Sen who starts with the notion of ‘functionings’ which summarise the life a person might lead. Some functionings are elementary: being well nourished and disease free. Some are more complex: having self respect, preserving human dignity, taking part in the life of the community. Sen then introduces the key notion of ‘capability’ which refers to the alternative functionings (‘life choices’) a person might have, indicating the freedom of choice a person has over their life. Material consumption is only a part of that totality, while opportunity and an individual’s life path and the inclusive society are an integral part of it. The Fraser-Beeby principle is an educational articulation of Sen’s approach. Sen was awarded a Nobel prize in economics for his contributions, although disappointingly his insights are yet to be incorporated into public policy.

The Supply Side Implications of the Economic Paradigm of Education

The extremists wanted to commercialise the supply side too. Vouchers are a part of that strategy, but a number of other measures actually introduced aimed to make schools run like businesses in an environment in which they competed for students and resources.

There is chapter in my book,The Whimpering of the State, which evaluates the underlying economic model which influenced the education reforms.[3] Schools were to be treated like businesses, on the argument that maximum performance would be obtained by putting them into a competitive market environment with principals having the powers of a chief executive with the freedom to manage the inputs of the firm (including the teachers – remember bulk funding?), and the parents having market choice.

Yet there was a weakness in my critique. Systematic modelling inevitably involves making simplifications. (So does unsystematic theorising, but the assumptions are more obscure, and the simplifying harder to identify.) There is a danger of oversimplifying – rigour to the point of rigor mortis. A model needs to be empirically tested: as does its critique.

So I was delighted by When Schools Compete: A Cautionary Tale.[4] The American authors, Edward Fiske and Helen Ladd, spent five months here in 1998 assiduously examining the outcome of the reforms, including interviewing almost 200 people involved in education and visiting almost 50 schools. Their conclusions are a damning indictment of a market-led education system. The book is one of the most compelling critiques of New Zealand’s commercialisation.

However, this fine piece of work wont convince the economic fundamentalists, who can always explain the defects of the reforms by them being incomplete, and not pursued to the bitter end. ‘If only’, they will say, ‘there had been full commercialisation’ – they mean privatisation – ‘then the benefits we predicted would have appeared’. They are already using that argument to explain the obvious failure of their economic and health reforms. To rebut the reformers it is necessary to place the evidence of failure in the context of a failed theory.

Are Schools Businesses?

If the commercialisers have not been not very explict about the theory they are using, it is because creed overwhelms analysis. Theirs is a blind faith in the merits of business forms of economic activity. So what the chapter in The Whimpering of the State does, is try to describe the model of a school as a business.

By way of introduction, consider attempts by economists to estimate a production function for schools. The implicit assumption is that if we can treat a school like a business, then it has inputs combine in a production function to give an output. There is a well established econometric method in which the data of inputs and outputs from businesses in the same industry are pooled to get a business production function which, among other things, tells us what is the contribution of each input to the output of the business. Why not estimate production functions for schools?

When they did, economists found production functions of sorts. But they often had counter-intuitive conclusions. For instance, it often appeared that better teachers, measured in various ways, do not markedly enhance a school’s output. Sometimes they appear to have no effect at all, the implication being that better teachers (in the way that such things are measured) could be replaced by inferior teachers and the school would suffer no loss. (Which may provide some justification for bulk funding.)

But how do we measure the output of a school? In these studies the school performance is assessed by examination attainment. But is that the sole goal of the educational system? Recall the doubts that education is solely about qualifications. All such doubts are ignored in this econometric studies. The schools’ performance is being measured on but one dimension.

An even more extraordinary lacuna is the measure ignores the differences between students, just like those misleading league tables which newspapers use to rank schools by the exam attainment of their students there is no acknowledgement that the differences may reflect the degree of privilege and deprivation in the student’s life outside school rather than the school’s teaching performance. In economic terms, the studies treat gross output as if it was net output, which means they are not measuring true productivity. In educational terms they confuse attainment with achievement. In the end the studies tell us much less about the effectiveness of inputs – of the effect of different quality teachers for instance – than they can possibly claim. (What then the justification for bulk funding?)

What actually is a school’s output (to continue to use economists’ terminology)? If a school is a business, what is it producing? Is it a shop selling credentials, like a furniture shop sells furniture? Are the pseudo-universities which sell internet degrees the ultimate end of a commercialised education system? Or perhaps they are not selling to students, but processing them, like a freezing works. Instead of cows in, beef out, we get students in, graduates out. Even that it is not quite right because all cows are much the same (we breed them that way) whereas students are very different (for we breed humans for diversity).

Moreover students interact between themselves: an exceptional class may result in ordinary students doing well; a difficult class and the best students will suffer. (The unspoken point of those newspaper league tables is they enable us to tell where the good students are, and – if we care – send our children to the schools where they will benefit from good colleagues.)

If economists find it difficult to characterise the reality of the school and its teaching as a business producing something or other, the puzzlement is not peculiar to my profession. While writing The Whimpering of the State I had my attention drawn to Yeats’ poem Among School Children, in which he meditates as he walks ‘through the long schoolroom questioning’. Its final lines, which I quoted at the beginning of the chapter on core education, are
‘O body swayed to music, O brightening glance,
How can we know the dancer from the dance?’

How can we know the educated from the education process? Exactly.

In defence of economists, I think it was absolutely right to test the scientific hypothesis that schooling could be characterised by a production function, just like other industries. Since the hypothesis is not supported by the evidence, a scientist would ponder the relevance of the theory. But if it was right for economists to test this scientific hypothesis, it was absolutely wrong for them to pursue policies based on the truth of a hypothesis for which there was so little empirical support.

Professionalism in Education

The education reforms changed the environment in which the schools operated by opening them up to competition. There was also a deliberate attempt to change the way schools were internally administered. It was not just increasing the power of the board. There was also an attempt to fundamentally change the relationship of the principal to the professional teaching staff.

One effect of the reforms of the core public sector has been to undermine personal responsibility and professionalism. As American expert Alan Schick reported, there appears to be an unaddressed tension between the reform’s managerialism with its emphasis on accountability, and professionalism with its emphasis on responsibility.[5] It is the dichotomy in management theory between the ‘scientific management’ and ‘human relations’ approaches. Scientific management emphasises a pyramid of control topped by a single chief executive, with a need to provide mechanisms to ensure that those at lower levels do what is required. The human relations approach was a reaction, arguing that effective work processes require a more decentralised management style, in which social norms and non-economic rewards are crucial, and collegial relations important. The public sector reforms were dominated by scientific management notions.

This diminishing of role of professionalism as a core value and the abandoning of the related human relations approach to management has seeped through to the education system. Again bulk funding is an indicator of the scientific management approach. Once more we meet the problem of what is the educational production process as it applies to teachers. Can it be properly characterised in an hierarchical pyramid of control, or are collegial relations critical?

Conclusion: The Political Economy of Education Reform

This paper has tried to engage with educationalists as to the relevance of economic models in the educational system. Unfortunately the approach of too many economists – fortunately not all of them – has been to ignore the educational paradigm and impose their own. I was alerted to this by the infamous second volume of the 1987 Treasury Post-Election Briefing, which was devoted exclusively to the education sector.[6] On reading it a number of senior members of the education profession went ballistic. The most cogent critique of the commercialisation as it applied to a particular sector is from those educationalists. The history of that resistance is yet to be written, but one cannot help noticing that a goodly number of the critics have since taken up prestigious positions overseas, indicative of their international quality. On that test economists need to take notice of them. Perhaps it is a good thing for the confidence of the economics profession that there is no history of the resistance to their proposed reforms.

Not all the arguments used by the critics were valid. But enough were, and some engaged with some parts of the economics paradigm, although there are still those in the educational sector who adopt the economics perspective uncritically, and some in its extreme commercialist form. The most notable group to do so have been in the tertiary sector, who saw it as a way of increasing their funding. To do so, they had to largely ignore their own departments of education, who were cautioning against the uncritical acceptance of the economists’ account of education.

But even the most cautious must recognise that economists are not going to leave education alone. Undoubtedly education impacts on economic growth. Even if it did not, at around seven percent of GDP education is one of the largest users of resources in the economy, a very substantial proportion of its funding coming from the state.

What economists have to be reminded is that we know very little about the exact linkages from the education system to economic growth and that, as attractive as neoclassical theory is at hiding our ignorance, it depends on a series of assumptions which do not reflect the reality of education. They also need also to be reminded that while schools behave like businesses is a hypothesis that is largely rejected by the scientific evidence. Imposing business models on the education sector despite this failure is quite unacceptable, and almost certainly will damage the education process, any economic growth it might contribute to, and the higher goals of society. Economist’s acknowledgement of the importance of education may actually damage the activities on which they place so much faith in.

Because their trade is about economic growth, economists need to be reminded that education (and society) has goals other than economic growth, which generate outcomes which economists practice in their private lives much like the rest of the community, even if they ignore them in their theories. Among those wider goals are enlightenment, social coherence, and entitlements, opportunities and life paths. They are not to be dismissed lightly for they are at the heart of living in a society.

But whatever criticisms one may have for economists, more culpable are those educationalists who have adopted the economists’ model. Economists may have nothing better. Educationalists have no such defence.

Ultimately there has to be an engagement of the two paradigms, which will result in an economics which offers a richer and more realistic account of the world, and an education system which better meets needs of the economics and non-economic goals of the nation.

Endnotes
1. R.M. Solow, (1957) “Technical Change and the Aggregate Production Function”, Review of Economics and Statistics, August 1957, 39, p.312-20.
2. Hawke, G.R. (1988) Report on Post Compulsory Education and Training in New Zealand, Government Printer.
3. B.H Easton (1999) The Whimpering of the State: Policy after MMP (Auckland University Press), especially Chapter 12.
4. E.B. Fiske & H.F. Ladd (2000) When Schools Compete: A Cautionary Tale (Brookings).
5. A. Schick (1996) The Spirit of Reform: Managing the New Zealand State Sector in a Time of Change (State Services Commission).
6. Treasury (1987) Government Management, Post Election Briefing to the Incoming Government: Volume II Education, Wellington.

The website also contains the following related papers:
General

The Commercialisation of New ZealandChapters 12,13.
The Whimpering of the State: Policy after MMP Chapters 12,13.
Education Factories
Economic Growth
Science and Nationbuilding
Education & Skills
Reviews of Two Books on Labour Skills and Social Progress
Mind Your I’s and Q’s
Management & Professionalism
href=modules.php?name=News&file=article&sid=33>Does Professionalism Matter? NZIPA paper
Does Professionalism Matter? ‘Listener’ column
Two Styles of Management
Sen and Mill
Being and Doing
Development as Freedom
Of Pigs and People
Student Loans
The Debt Burden of Students
The Sustainability of Student Loans
Capital Cattle

Economics and Violence

Chapter in Overcoming Violence in Aotearoa New Zealand (Phillip Garside Publishing Ltd, 2002) p. 37-43.

Keywords: Social Policy

Economics has such a pervasive role in public discussion, that it is useful to remember that on some matters it has little to offer, which is the spirit in which this offering is made.

It is true that sometimes economic considerations can lead to considerable violence. Just over half a century ago the powerful economies of Germany and Japan, finding their access to resources restricted, tried to extend their territories to encompass their resource bases. Their military ambitions were settled with defeat in the Second World War, but the resolution to their limited access to resources took longer. The answer was increasing international trade, for today both countries – and many others – obtain the resources they require by international exchange. It is a solution which may not be ideal, but it certainly less imperfect than conquest. In a similar spirit the European Union was founded to tie up the coal and steel industries of Germany and France to make warfare between then again impossible.

The theory which might underpin this strategy, supposes that when the distribution of resources is justly allocated between the market participants, who then engage in voluntary trade, the outcome of the various transactions is just. There is a number of caveats to this story. For instance the traders need to be fully informed, as stories about second hand car deals that have gone awry remind us. Nor need a just outcome be necessarily fair, a problem the courts wrestle with every day. Nevertheless, at the time of the trade, each participant thought they were better off as a result. Third, the theory is also set out in terms of trading of commodities, and the introduction of money complicates the analysis. (Financial assets even further complicate it.) However the crunch, it seems to me, is the extent to which the initial endowment of resources are justly allocated, a matter to be discussed below.

Even so the conclusion remains that voluntary market transactions, made in the context of a maturely regulated environment, are a means of resolving implicit conflicts over resources. Internationally – and indeed nationally – we can reduce conflict by a system of market trading, although that may not resolve all our concerns.

One concern is the extent to which market trading encourages violence through its emphasis on competition. The term ‘competition’ represents a number of complicated notions. I regularly ‘compete’ against myself when involved in some exercise. A couple of teams playing one another are competing, although ideally it is in the spirit of ‘you wont worry whose the loser, when you meet them in the boozer.’ This is a long way from the notion of competition captured in the idea of ‘Nature red, in tooth and claw’ (which despite its reputation was published before Darwin expounded the theory of evolution). How necessary is this sort of aggressive competition for a market system to work?

The market is a signalling system when it is properly function, where each price should be proportional to the social costs of the resources embodied in the commodity. (Economics goes to a lot of trouble to explain how this occurs, and when it does not. The exceptions are important, but not so important that they ruin the basic argument.) The individual only purchases a commodity if it is of greater value than its price to her or him – if the personal value exceeds the social value. As the individual is better off, and the rest of society has lost nothing, society as a whole is better off. The signalling system is self enforcing. There is little point in purchasing for ones own use something which is less personal value than the price. Any signalling system will on occasions make mistakes. In the market case a purchaser who makes a mistake pays an instant penalty directly related to the magnitude of the error, an effective encouragement to minimize it.

The process of competition is a means of ensuring prices reflects the lowset possible social costs. It puts pressure on every provider to use the resources as efficiently as possible, reducing the resources used. Consequently, often two or more economic actors (say firms or workers) may be in competition with one another to provide the lowest cost product, which is of benefit to the purchaser but also to society since the lower costs means less resources are used.

We tend to treat this competitive process as a very aggressive activity, but we could see it rather like the football match or exercising, where actors are simply doing their best, and there are winners and losers. Of course the end of the game is hardly the shaking of hands and writing off the previous events. Sometimes the losers become unemployed – at the very least they lose income. We can tease this out with an example.

Suppose it is cheaper to provide some clothing from an Asian source than the traditional New Zealand factory. The first major point this essay made was that better the Asian send us clothes in order to obtain a share of New Zealand resources – say timber – via international trade, than to use military means. But what about the unemployed New Zealand factory workers?

We could assume every person is entitled to the same job for life in the same location. This would be a very static society, but when it is usually ennunciated it pertains to only a selected group of workers who are about to become redundant, but earlier had been willing to purchase cheap Asian cars, electronic goods and so on, even though that meant other workers were displaced (just as other workers purchase the Asian clothes because they are cheaper). And this also ignores that other workers have gained jobs selling timber and other products to Asians. Too often the rhetoric overlooks the gains from lower priced (that is resourced) products and the jobs which are generated to pay for it. The logic is not to eschew international trade – even were that practical – but to evolve a domestic economy which is responsive to the opportunities it creates, and supportive to those who suffer from it. The elaborate economic theory which says that international trade is beneficial to a country as a whole, has never argued it is beneficial to every single body in the country, although often the political rhetoric advocating free trade seems to imply the latter.

(Before offering the next step in the thesis, it is useful to draw in another thread. International trade can be thought of as a technological innovation – typically a labour saving one. In the above example it is less resource-using to export timber and import clothes than to make the clothes in New Zealand, and so the round-about export-import process may be thought to be technologically superior to the domestic production process. Denying the international trade option is a form of ludditism. It is no great generalisation to interpret the following as covering all technological innovations, and not just those involved in international trade.)

The most common suffering from free trade will be redundancy, in which some (indeed most) of the redundant go through a period of unemployment as a part of their redeployment. The redundancy is not their fault, and it is quite foolish to blame these unemployed for their situation. It makes good sense to have an active labour market program which speeds up the redeployment, by offering job searching, retraining and relocation facilities. Thus, it totally unacceptable to design economic policy around a target of some ongoing level of unemployment. Certainly there will be a pool, which will rarely dry up altogether. At issue is whether the pool is stagnant with the unemployed condemned to it permanently, or it is a like a fresh water lake in which redeploying workers are passing through as a normal – and minimally stressful – part of their life.

So if international trade is a means of reducing international violence, it places requirements on how the domestic economy can be organised. For the latter part of the essay we turn to the question of what contribution an economy has to minimising violence in a domestic economy, largely ignoring the international component. This has two key elements: social cohesion and economic pressure.

We can illustrate the problem of social cohesion by recalling the looting which followed the most recent Fijian coup. Now while the coup involved racial conflict, the looting was primarily by young permanently unemployed indigenous Fijians. The economic damage to Fiji will be long term if not permanent. It is not simply a matter of the destruction of the shops and the redistribution of the goods therein. Commercial relations – the ability of Fijian business to function effectively – has been badly set back, future Fijian shoppers (of all races) will suffer inferior service, while international tourism a main foreign exchange earner will be less prosperous (as indicated by the visitor fall off, and the devaluation – the raising of foreign import costs to Fijians – to attract the visitors back).

Yet the unemployed youths looted, despite it being disastrous to the Fijian economy, illustrating what is good for the economy as a whole may not be in the interests of every one in it. The youths judge, probably correctly, that the majority of them had little prospects in the Fijian economy in the long run, whether it be prosperous or stagnant. Better for them to participate in the short term benefit of looting, which would have so little impact on their long term prospects.

If a group does not have an investment in society then it may sometimes be in its interests to wreck it. The interests may be direct in that they are prospering, they may be prospective in that they may have a reasonable chance of prospering, or they may be indirect in that people they care about have a direct or prospective interest. (For example, we dont get gender division in the way some societies get racial division, because most of us have close friends and relations of the opposite gender.) The degree of investment each of us has in the prospects for our society – collectively its ‘social coherence’ – gives each person an incentive to reduce social conflict and violence in our own behaviour.

Because New Zealand is a small society, social coherence is a possibility which it is not in a larger one. (How extraordinary it was that the United States only found a sense of common purpose and identity following the terrorist attacks of September 2001.) Social coherence may be stifling, as those who fled a country town or even New Zealand, illustrate. Getting the right balance is not easy. However trying to model our economic and social structures on a much larger society is foolish. Yet an Americanisation strategy underpinned much of the reforms of the 1980s and 1990s. (I leave others to draw parallels between the unemployed Fijian youth looters and the Rogernomes.) It is sometimes said that the New Zealand economy is too small to be viable, but it is better to see its size as a feature which creates opportunities as well as limitations. The use of social coherence for reducing violence (or more positively creating a decent ambience), and as a part of a national economic strategy (as described in my book The Nationbuilders for the 1930s to 1970s) would be creative examples.

Social coherence relies on some assumption that the resources (and opportunities) of society are justly allocated to a reasonable degree. (The Fijian youth did not think so.) We struggle with reparations to the Maori – many of whose ancestors lost their assets in less than voluntary circumstances. But there was never an original state which was just. Nor is it clear how luck and inheritance fit in. Thus I have no problem with restrained interventions which redistribute income in favour of the poor.

However that is not a view of all New Zealanders, so that the reformers of the 1980s and 1990s massively redistributed income to themselves – the rich – with no obvious gains for society as a whole. It seems likely that today a higher proportion of the population have less sense ‘of participating in and belonging to’ their community – the underpinnings of social coherence – than in 1972 when the Royal Commission on Social Security set down the objective. That is despite the average standard of living having risen in the last 30 years, today there seems (proportionally) more who do not feel a part of society. Social coherence involves the community sharing in the fruits of prosperity – not exactly evenly, but sufficiently.

One consequence of the failure to share has been the increasing numbers (and proportion) of poor – especially families with children. (Today’s standard poverty line remains at the same level (adjusted for prices) that the 1972 Royal Commission implicitly recommended.) The reality is that low incomes (compounded by unemployment or low quality employment) put pressure on the family. Economists do not know much about the consequences of this pressure for that expertise belongs to other disciplines. Occasionally economics can make a small contribution by reducing some of the direct influences – the rising taxation on alcohol, to reduce alcohol misuse is a proud example. But the more fundamental contribution of economic policy is to reduce the economic pressures by raising incomes and reducing unemployment. It said that patterns of violence are inherited from one generation to the next. While the issue is not as simple as this, one cannot dismiss the argument that pressured families with growing children are prone to a violence which not only directly affects the welfare of the children, but eventually that of the grandchildren.

The measures necessary to do reduce the economic pressures are technical and outside the remit of this contribution. But note they invariably involve others sacrificing spending power. However, it is not the technical issues which limit the policy response. It is the public will. One consequence of the reduction of social coherence has been an unwillingness to tackle these pressures by preventative rather than reactive measures. It cannot be an accident that the successors to the advocates of the policies of the 1980s and 1990s see a need for greater policing and harsher penalties on criminals. Such remedies suggest economism – the belief that economics has all the social answers – has failed. We need a wider perspective than that from economics.

Ultimately the whole notion of society is underpinned by morality. Not the morality of the dos and donts of sex, which may or may not be a part of an authoritarian direction of behaviour. Rather it is a morality which offers an account of humankind living in communities which are underpinned by reciprocal, and largely voluntary, relations (like the market in fact) based on caring for its other members, and for which there is an ethical rather than mechanistic account which gives a coherent context to these actions. Among those who have articulated this best have been the religious – not all of course, but the thoughtful who mix a liberal vision with conservative practice, and who celebrate humankind as possessing flaws but able to be lifted spiritually beyond them. That is why this book about violence was instigated by a group of ministers, rather than a group of economists and other social scientists and policymaking technicians.

Productivity and Employment: NZ’s Post-war Economic Growth Performance

Note: This paper has been replaced by a more recent version based on a more comprensive data base. Go here for the most recent version

Keywords: Growth & Innovation, Labour Studies

Introduction

It is not always wise to promise an empirically based paper before the research has been done. When preparing New Zealand’s Post-War Growth Performance: Comparison with the OECD[1], I observed that the Maddison data base on which the OECD data derived also had some statistics of employment and hours worked, which allowed it to provide some estimates of productivity.[2] New Zealand was not included, but since there was comparable data for New Zealand, I thought, it would be straight forward to include New Zealand in the data base. Hence the promise to produce this paper.

Having carried out the promise, I am somewhat more circumspect. The results reported below are not without merit, but I urge caution in drawing conclusions from them. I am neither sure how robust the Maddison data base is, nor how comparable is the added New Zealand data. For this reason the focus is on the 1998 year. Maddison provides post-war figures only for that year (the last in his series), 1990 (the base year for the data), 1973 and 1950. Estimates of New Zealand output per worker and their relation to other OECD countries for the four years are provided in the last section. The 1998 year data below uses the OECD estimate of New Zealand employment, and Statistics New Zealand estimate of hours worked per week.

The structure of this paper may be summarised in the following truisms

(Output per worker) = (Output per capita) divided by (Employment as a proportion of the population),

and

(Output per hour worked) = (Output per worker) divided by (Annual hours worked per worker),

where Output is measured as GDP in the same (1990) prices across different countries.

New Zealand in an OECD of 19: 1998

Maddison (2001) has only comprehensive employment OECD countries, but without the Czech Republic, Hungary, Iceland, Luxembourg, Mexico, Poland, Portugal, South Korea, and Turkey (as well as New Zealand).[3] The per capita GDPs for the remaining 18 plus New Zealand for the 1998 year are in Table 1. (They are the same figures that are used in the Comparisons with the OECD paper).

Table 1: GDP per capita

Country $US1990/person
US 27331
Norway 23660
Denmark 22123
OECD19 21710
Switzerland 21367
Canada 20559
Australia 20390
Japan 20370
Netherlands 20224
France 19558
Belgium 19442
Austria 18905
UK 18714
Sweden 18685
Finland 18323
Ireland 18183
Germany 17799
Italy 17759
New Zealand 14770
Spain 14227

The New Zealand GDP per capita is 68 percent of the average, lower than for the full 29 countries, because it is the poorer countries who have a less satisfactory statistical base.

The Worker Force in the Population

Different countries have different proportions of the population who are employed. The ratio is a complicated summary of the effects of the population age structure (a youthful population tends to have a lower ratio, as does one with a lot of retirees), the labour force participation rate for those in the working ages, and the unemployment rate. Table 2 reports the ratio of the employed to the population for the 19 countries.

Table 2: Ratio of Employed Population to Total Population: 1998

Country Employed/Population
Switzerland 0.540
Japan 0.514
Denmark 0.508
Norway 0.506
US 0.491
Netherlands 0.475
Canada 0.475
OECD 0.463
Australia 0.461
Austria 0.461
UK 0.458
New Zealand 0.454
Sweden 0.450
Germany 0.440
Finland 0.436
Italy 0.423
Ireland 0.406
France 0.386
Belgium 0.369
Spain 0.340

There is considerable variation of the proportion of the population who work. New Zealand is just below the median and 98 percent of the mean.

Ouput per Worker

Combining these two tables gives Table 3, GDP per worker, which is a measure of productivity.

Table 3: GDP per Employed Person: 1998

Country $US/worker
US 55618
Belgium 52642
France 50680
OECD19 46856
Norway 46792
Ireland 44822
Australia 44190
Denmark 43564
Canada 43298
Netherlands 42534
Finland 42058
Italy 42015
Spain 41870
Sweden 41564
Austria 41019
UK 40875
Germany 40452
Japan 39631
Switzerland 39570
New Zealand 32542

New Zealand is at the bottom of the rankings at 69 percent of the mean. Spain has leapt up to 12th, because of the low proportion of the population who are classified as employed.

Hours worked per Worker

Table 4 adds to Maddison’s data an estimate of hours worked per New Zealand worker. Hours work per week is derived from the quarterly employment survey. This is multiplied by 46 weeks of work per year, which is calculated by allowing for the 12 days of public holidays and the 18.6 days annual leave that applies to New Zealanders.[4] We do not know is whether the Maddison data is calculated on a comparable basis.

Table 4: Annual Hours Worked per Worker:1998

Country Hours
Spain 1908
New Zealand 1778
Japan 1758
Denmark 1664
Canada 1663
Ireland 1657
Australia 1641
Finland 1637
US 1610
OECD19 1608
Switzerland 1595
Sweden 1582
Belgium 1568
Germany 1523
Austria 1515
Italy 1506
France 1503
UK 1489
Norway 1428
Netherlands 1389

New Zealand proves to be the second to highest of the OECD19 in terms of hours annual worked per worker, some 10.5 percent above the average. That is about 170 hours, the equivalent of almost 4.5 days a year.

Ouput per Hour Work

Combining the last two tables gives Table 5 where productivity is measured as output per labour hour.

Table 5: GDP per Hour Worked: 1998

Country $US1990/hour
US 34.55
France 33.72
Belgium 33.57
Norway 32.77
Netherlands 30.62
Ireland 29.48
OECD19 29.14
Italy 27.90
UK 27.45
Austria 27.08
Australia 26.93
Germany 26.56
Sweden 26.27
Denmark 26.18
Canada 26.04
Finland 25.69
Switzerland 24.81
Spain 23.41
Japan 22.54
New Zealand 18.30

New Zealand is at the bottom of the table at 63 percent of the average.

Whether this represents the actual situation I am unable to say. Given the difficulties of calculating employment and hours worked for New Zealand, one wonders how reliable the data for the other countries are.

Output per Worker Through Time

There is no standard employment series for New Zealand for the post-war era. I was able to cobble together one based on the Ppoulation Census, and interpolated using the employment Survey. Table 6 gives the ratio of New Zealand’s GDP per employed relative to the average of the OECD 19 countries, for Maddison’s four benchmark years.[5]

Table 6: NZ GDP per Worker as Average of OECD 19

Year Percent
1950 135.6
1973 97.2
1990 72.8
1998 69.6

Basically the pattern is the same as for GDP with a secular decline throughout the post-war era. New Zealand is above average in 1950, ahead of many war ravaged countries, about average in the 1970s, and declines after. The decline in the 1990s (in contrast to a GDP relativity which was fairly constant) reflects the poor growth in labour productivity over the period offset by strong employment growth.

Conclusion

I have emphasised that I am not as confident of the robustness of the labour force data as the GDP data (and I have many concerns about that). If there is a conclusion to all this, it is that labour productivity patterns are much as what one might have expected from the relative GDP, and it is not obvious that labour market has been a particular problem to New Zealand’s poor post-war performance other than, of course, that arithmetically the poor growth performance is associated with a poor labour productivity performance.

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Endnotes
1. B.H. Easton (2002) New Zealand’s Post-War Economic Growth Performance: Comparison with the OECD (Economic And Social Trust On New Zealand).
2. A. Maddison (2001) The World Economy: A Millennial Perspective (Development Centre Studies, OECD)
3. Maddison (2001) does provide some employment data, but not hours worked for Czech Republic, Hungary and Poland.
4. B.H. Easton (1998) The Impact Cost of Increasing Statutory Holiday Entitlements (discussion paper for NZ Engineering Printing and Manufacturing Union).
5. If the Czech Republic, Hungary and Poland are added the relativities with the OECD 22 are (1950:140.7; 1973: 101.2; 1990: 76.0; 1998: 71.8)

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Rewarding Service: a History Of the Government Superannuation Fund.

Review in the E-Journal Making History (http://www.mch.govt.nz/History/making-history/govt-super.html)

Keywords: Social Policy;

There is a line entry in the 2002 Budget’s Economic and Fiscal Update for ‘GSF pension expenses’ of $671 million, an amount sufficient to more than double the total vote on arts, culture and heritage, the community and voluntary sector, conservation, national archives, the national library, and sport and recreation. Rewarding Service is a history of how that entry came about.

To understand this sum, we need to understand the distinction between contribution-determined and benefit-determined occupational superannuation schemes. In the former, the pension or annuity is set by the amount invested in a fund, together with the return on the investment. In the latter, the pension level is independent of the contributions. Most benefit-determined pensions involve contributions from both employees and employer which are calculated to be sufficient to fund the pension. The two approaches seem the same, since the ex-ante –– before the event –– calculations of the contribution in relation to the benefit for each type of scheme are arithmetically identical.

However, ex-post –– after the event –– the two kinds of schemes work quite differently. The assumptions of the actuarial calculations will not be realised; there will be a difference between what the investment fund proposed to pay and what it can pay. More often than not, the funds will be insufficient to pay the promised pension. Who bears the loss? In a contribution-determined scheme it is the pensioner, who receives only what the contributed fund can afford. In a benefit-determined scheme the employer makes up the difference between what was promised and what the fund can pay. In practice, only the government has the funds to guarantee a truly inflation-proofed benefit-determined pension, as the New Zealand government (that is, taxpayers) is doing this year to the extent of $671 million.

Histories of contribution-determined schemes are inherently boring –– a sequence of the institutional evolution, some of the personalities (and characters) who were involved, the odd event, and the buildings in which the administration resided. Occasionally there is the excitement of a financial crisis, as when Robert Maxwell got off with his employees’ contributions, but that shifts the nature of the history.

A government benefit-determined scheme is a different story altogether, because the connection between the contributions and the outcomes is not as tight, and there arises the possibility –– nay, the actuality –– of ongoing negotiations between the employer-government and the employee-prospective pensioners. It is these events (and the $671 million) which gives a piquancy to Atkinson’s history of the Government Superannuation Fund.

The story begins with the opening legislation of the nation’s second Parliament in 1856, when three members of the old Executive Council were granted pensions –– no contribution, and paid by the taxpayer. By 1858 Parliament was granting a non-contributory pension to long-serving employees in order to ‘secure those best fitted …… for the public service.’ The first contributory scheme was introduced in 1886, with an eventual contribution-determined pension. By 1893 the principle of the government topping up inadequate pensions was sneaking in, despite Colonial Treasurer Ward’s promise to Parliament that the scheme was ‘self-supporting’.

Following the introduction of the means-tested old-age pension in 1898, and coincident with a major expansion in the public sector, the Liberal government established separate contributory funds with benefit-determined pensions for police, railway workers, teachers and the civil service. By 1908 these were being tinkered with, a practice which continued until the unified Government Superannuation Fund ended in 1992. From the very beginning there were negotiations between the government and representatives of the future pensioners. Later negotiations, where there is a record, are described in the book.

These negotiations illustrate the basic problem. The government needed to be a good employer. Wanting a high-quality stable labour force, it provided a post-employment retirement pension as a part of the security of pay and conditions. Thus the scheme was benefit-determined. The connection with the employee contribution was compromised, not only because economic conditions would change over the lifetime of the contributor –– markedly and variably, as history shows –– but because the fund was administered by the government, and any failure to attain the returns that the actuarial calculations promised could be attributed to the government’s poor management. This meant that there could be considerable renegotiation of the terms of the scheme, with a tendency to improve them for pensioners because, unlike in a purely contribution-determined scheme, any increase in one condition (e.g. a better pension for widows) need not be automatically offset by a reduction in another (a lower pension for couples).

These changes through the twentieth century are detailed by Atkinson, so let me skip to the end, except to note some unnecessary errors in the text. For instance, on page 23 it is stated that ‘inflation was relatively rare in early twentieth-century New Zealand’. In which case, why was a commission of inquiry established to measure it in 1912? In a (hard-to-decipher) photograph on page 105, the Treasury solicitor, Ivan Kwok, is described as ‘Secretary of the Treasury’.

A key element of post-1984 economic policy involved reducing the exposure to risk of the government by shifting the risk to individuals. This is a complex story because any government risk is carried by taxpayers, so the transfer is from one group of New Zealanders to another. The government-underwritten, benefit-determined superannuation scheme for its employees was an obvious target. The aim was to shift the risk of actuarial mistake from the government and taxpayers in the current workforce, to the future retiring pensioners.

As Atkinson shows, the undermining of the comprehensive scheme began in the mid-1970s, and later government superannuation reform got mixed up with the politics of the changes to National (now New Zealand) Superannuation The government also made short-term concessions to win the long-term objective of eliminating the benefit-determined scheme.

As the $671 million line entry shows, the long-term objective is yet to be attained, although by 1996 there were fewer contributors to the rump scheme than there were pensioners. While the absolute amount continues to rise, the Treasury forecasts have the line entry very slowly diminishing as a proportion of government spending. At some stage –– perhaps 50 years hence –– that item will be an irrelevance and the scheme but history, rather than a part of today’s fiscal reality.

Its demise leaves us with a couple of issues to ponder upon. The GSF line entry currently amounts to about 15 per cent of the net cost of New Zealand Superannuation. However, it goes to only about 40,000 retirees –– less than 10 per cent of the over-65s. At some point this relatively well-off and secure group will diminish. What are the implications for the future elderly? And let us not forget that the original purpose of the scheme was to generate a cadre of loyal and long-serving public servants, at a lower wage cost. What are the implications for the future of a public service without this incentive?

Thus Rewarding Service does what its commissioners had hoped for: to record the past and provoke the learning of lessons for the future. One day some Treasury official, grumbling about the GSF line entry in the government accounts, may look at this study, see how the entry arose, and wish that he or she had been a member of such a secure pension scheme.

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The Comparison with Australia: NZ’s Post-war Economic Growth Performance

This is the second of a series of papers. The first has a secondary title of ‘Comparison with the OECD’ and the third is Productivity and Employment

Keywords: Growth & Innovation

The most obvious country to compare New Zealand with is Australia. How did they do in the relative GDP per capita stakes? This report does not go through the details of data preparation, which are exactly the same as reported in the Comparison with OECD paper.(1) The Australian series is that reported in Maddison, adjusted to a March year basis. (2) The accompanying table and graph show the ratios of New Zealand GDP per capita to that of Australia, and for Australia to the OECD, and New Zealand to the OECD.

GDP per capita.

Click on Graph for Fullscreen Image
Click on Graph for Fullscreen Image

The data for the graph is at the end of this paper

Australia and the OECD

Before looking at the relative performance of New Zealand and Australia it is useful to look at Australia against the OECD.

Australia too, began above the OECD average, and declined – on the whole more slowly than New Zealand (although there is a problem of measurement error as the next section discusses) through to late 1980s or early 1990s. Since then, it has expanded faster than the OECD, and is back ast the level of the early 1970s. The impression is that, other than this turn around, there are not the abrupt changes in its trend that New Zealand experience, nor is the cycle around the trend as strong.

Australia has never been below the OECD average. The lowest it reached in the early 1990s (a level New Zealand had last attained in the mid 1970s). According to the Maddison data, Australia would have been 8th in the OECD in 1998 behind the United States, Norway, Denmark, Luxembourg(?), Switzerland, Japan and Canada, and just above Netherlands. Australia was so close to Canada and Japan ii may well have passed them by now, which would rank it sixth in the OECD today.

Australia is now in its 11th successive year of perceptibly faster growth than the OECD average, which suggests that there has been a significant turn around. This report does not jump to any specific conclusions about the reasons for the Australian recovery of the 1990s, although economic commonsense suggests the 1980s must have laid the foundation for the perceptible improvement in relative growth. I have on the research agenda to see what I can find out about the turnaround.

New Zealand and Australia

New Zealand’s GDP per capita was just ahead of Australia through the 1950/1 to 1966/7 – by around 5 percent. In effect the two economies were growing at the more or less the same per capita rate, the minuscule difference of New Zealand growing .2 percent a year perhaps being due to measurement error.(3)

The 1996 wool shock changed the relativity, depressing New Zealand by about 10 percent, so that New Zealand was now 6 percent below the Australian GDP per capita level. It appears that Australia was not hammered in the way New Zealand was, partly because wool only half as important in its exports, but mainly because its fine wools for clothing did not suffer the big price drop that New Zealand crossbred wool for carpets experienced.

The pre-1966/7 minor relative decline continued after 1968/9, perhaps a fraction faster at .3 percent a year, but still possibly explained by measurement error, through to 1986/7. At that point the New Zealand GDP per capita relativity against the OECD fell sharply, while Australia’s genteel decline even eased back. The result was the New Zealand to Australia relativity deteriorated, through to about 1998.This may be due to the different handling of the Asian crisis of the late 1990s, when it has been argued that New Zealand monetary policy was too restrictive.

Today, New Zealand’s per capita GDP is about 75 percent of the Australian level, lower than the OECD relativity because Australia is above the OECD average.

It does not follow from this that had New Zealand been a part of Australia in the post-war era it would have grown more quickly. The exact institutional arrangements matter, and in any case some Australian states have grown more slowly than Australia as a whole.

The government may take comfort that its goal of growing at the Australian GDP per capita rate is achievel, and would result in New Zealand’s OECD relativity rising over time. This more cautious researcher simply notes the last four years, wonders whether it is post-Asian crisis cyclical, and plans to investigate further.

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Endnotes
1. B.H. Easton (2002) New Zealand’s Post-War Economic Growth Performance: Comparison with the OECD (Economic And Social Trust On New Zealand)
2. A. Maddison (2001) The World Economy: A Millennial Perspective (Development Centre Studies, OECD)
3. Australia and New Zealand measure the real output of the public service differently. The effect may enough to explain up to .3 percent p.a. difference in the volume growth rates. However, that will not affect the relative levels in the calibration year of 1990. B.H. Easton (1989) How Accurate are the GDP Statistics in the Long Run? (Hodge Fellowship Report; 9, mimeo, Wellington). Also In Stormy Seas p.281-283.

March Year NZ/AUS AUS/OECD NZ/OECD
1951 1.09 1.46 1.60
1952 1.08 1.40 1.52
1953 1.07 1.35 1.44
1954 1.04 1.33 1.37
1955 1.05 1.35 1.42
1956 1.04 1.32 1.38
1957 1.03 1.30 1.34
1958 1.06 1.28 1.36
1959 1.03 1.30 1.35
1960 1.02 1.29 1.31
1961 1.05 1.26 1.32
1962 1.06 1.22 1.29
1963 1.02 1.22 1.25
1964 1.02 1.23 1.25
1965 1.02 1.22 1.24
1966 1.04 1.20 1.25
1967 1.04 1.17 1.22
1968 0.97 1.19 1.15
1969 0.94 1.18 1.11
1970 0.94 1.18 1.12
1971 0.93 1.19 1.11
1972 0.94 1.16 1.09
1973 0.95 1.13 1.07
1974 0.97 1.12 1.08
1975 0.97 1.13 1.10
1976 0.96 1.15 1.10
1977 0.93 1.13 1.05
1978 0.90 1.10 0.99
1979 0.88 1.09 0.96
1980 0.88 1.10 0.97
1981 0.87 1.11 0.97
1982 0.90 1.12 1.01
1983 0.91 1.10 1.01
1984 0.92 1.08 1.00
1985 0.91 1.10 1.00
1986 0.89 1.10 0.98
1987 0.90 1.09 0.97
1988 0.86 1.09 0.94
1989 0.84 1.08 0.91
1990 0.82 1.08 0.89
1991 0.82 1.07 0.87
1992 0.81 1.05 0.84
1993 0.79 1.05 0.84
1994 0.81 1.08 0.87
1995 0.81 1.09 0.89
1996 0.80 1.10 0.88
1997 0.78 1.10 0.86
1998 0.76 1.11 0.85
1999 0.73 1.13 0.83
2000 0.74 1.13 0.84
2001 0.75 1.13 0.84
2002 0.75 1.14 0.86

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Books & Monographs

The websites contains brief summaries of the following books, plus their contents. Links from chapters are to associated website items.

The Commercialisation of New Zealand.

In Stormy Seas: The Post-war New Zealand Economy

The Whimpering of the State: Policy after MMP

The Nationbuilders

Globalisation and a Welfare State. (This was never published. Only about three fifths is available in first draft)

I am currently writing Transforming New Zealand

Books not on the Website

The Future of New Zealand Medicine: A Progressive View (Peryer, 1974) 150pp – joint editor, with D.W. BEAVEN, and contributor.

Social Policy and the Welfare State in New Zealand (Allen & Unwin, 1980) 182pp. (Japanese Edition, 1987)

Pragmatism and Progress: Social Security in the Seventies (University of Canterbury, 1981) 128pp.

Economics for New Zealand Social Democrats (McIndoe, 1981) 156pp.

An Introduction to the New Zealand Economy (University of Queensland Press, 1982) 339pp. with N.J. THOMSON.

Wages and the Poor (Allen and Unwin, 1986) 100pp.

The Making of Rogernomics (Auckland University Press, 1989) 212pp. editor and contributor.
From Run to Float: the Making of the Rogernomics Exchange Rate Policy (September 1989)

Unemployment in New Zealand (Dunmore Press, 1990) 191pp. with I. SHIRLEY, C. BRIAR, & S. CHATTERJEE.

Open Growth: A Response to the Task Force on International Competitiveness (NZEU, 1990) 67pp

Getting the Supply-side to Work (NZAEU, 1995) 80pp.

Towards a Political Economy of New Zealand: The Tectonics of History (Hocken Library, 1995) 29pp.

Monographs

Consumption in New Zealand 1954/55 to 1964/65 (NZIER Research Paper 10, 1967) 77pp.

Profitability and Performance in Post War New Zealand: The Impact of the Terms of Trade (Victoria University of Wellington Economics Department, 1980) 26pp. A preparatory paper for In Stormy Seas

External Impact and Internal Response: The New Zealand Economy in the 1970s and 1980s (NZIER Discussion Paper 25, 1982) 18pp. A preparatory paper for In Stormy Seas

The Impact of Taxation on Alcohol Consumption (Alcohol Liquor Advisory Council, 1982) 23pp. with L.B. KAY.

The Impact of the Public Sector Security Ratio on the On-lending Interest Rate of Finance Houses (NZIER Contract Research Unit Paper No 19, 1983) 10pp. with L.B. KAY.

By Rail or Road: A Case Study (NZIER Research Paper 27, 1983) 105pp. with P.A. MARKS.

Income Distribution in New Zealand (NZIER Research Paper 28, 1983) 281pp.

Studies in the Labour Market (NZIER Research Paper 29, 1983) 208pp. editor and contributor.

Subsidization of Urban Public Transport in New Zealand: the Economic Justification and Methodology for Apportioning Benefits (Urban Transport Council, 1984) 73pp. with C. PROPPER and N. WILSON.

Markets, Regulation, and Pricing (NZIER Research Paper 31, 1985) 142pp. joint editor with A.E. BOLLARD, and contributor.

Economy Wide Models of New Zealand (NZIER Research Paper 33, 1986) 281pp. with G.M. WELLS.

The Exchange Rate Since 1981, Performance and Policy (NZIER Discussion Paper 30, 1986) 24pp. A preparatory paper for In Stormy Seas

Is Victoria a Computable General Equilibrium Model? (PEP Occasional Paper No 88, 1986) 8pp.

The Quarterly Survey of Business Opinion (NZIER Research Paper 36, 1987) 109pp. joint editor, with R.D.BOWIE, and contributor. See Matter of Opinion

The New Zealand Economic Experiment (Research Paper 174, University of Melbourne Department of Economics, 1987)

Economic Instruments for Social Policy (The Royal Commission on Social Policy, 1988).

Wage Flexibility, Wages, and Free Lunches (Research Paper 180, University of Melbourne Department of Economics, 1987) 25pp.

The Need for Magnetic Resonance Imaging Systems in New Zealand: A Preliminary Evaluation (Wellington Multiple Sclerosis Society, October 1990) 12pp. with R.D. BOWIE.

A GDP Deflator Series for New Zealand: 1913/4-1976/7 (Massey Economic Papers B9004, December 1990) 24pp. A preparatory paper for In Stormy Seas

Structural Change and Economic Growth in Postwar New Zealand (Massey Economic Papers B9103, March 1991) 50pp. A preparatory paper for In Stormy Seas

Modelling Juliannes’ Fiscal Routines (Research Project on Economic Planning, Occasional Paper No 99, 1991) 17pp.

The Real Wage Debate: 1978-1990 (Research Project on Economic Planning, Occasional Paper 101, 1991) 35pp.

The Social Costs of Tobacco Use and Alcohol Misuse (Department of Public Health, Wellington Medical School, Research Paper 2, 1997) 36pp.

International Guidelines for Estimating the Costs of Substance Abuse (Canadian Centre for Substance Abuse) with E. SINGLE, D. COLLINS, H. HARWOOD, H. LAPSLEY, & A. MAYNARD (& R. BOWIE) 1997, 71pp. (Second edition 2002, with some variation in authors.)

The Commercialisation of Education (Central Institute of Technology, Occasional Paper No 4, 1997) 11pp.

The Economic Regulation of Tobacco Consumption in New Zealand (Central Institute of Technology, Occasional Paper No 7, 1998) 16pp.

The Economic Context of the Ministry of Consumer Affairs (Policy Paper No 4, 1998) 16pp. (primary contributor)

Metrology and the Economy (Report for the Ministry of Consumer Affairs, available at www.mca.govt.nz).

Imbalance Of Power:

Are Double Dipping US Corporations Symptoms of a Double-dipper World Recession?

Listener 10 August, 2002.

Keywords: Business & Finance; Macroeconomics & Money

Almost all recent New Zealand forecasts have accepted the international conventional wisdom that the US economy was in recovery. However, some forecasters have private reservations that a ‘double-dipper may be on’.

A ‘double-dipper’ would be an unusually long contraction with a brief recovery (or expansion) in its middle. The US economy went into recession in March 2001, although the stagnation was not ‘officially’ recognised until the end of the year. By then, the Bush administration had made major tax cuts which seemed to arrest the decline, and begun a expansion. If there is a double-dipper, any recovery will be tentative, and the economy will soon return to a contractionary mode. It may be in recession already.

The view sees some very severe internal imbalances in the corporate sector. US share prices have been well out of line with the traditional relation with profits. Even hugely optimistic assumptions say they are a quarter too high, although the sort of calculations we did for the New Zealand market before the 1987 crash would suggests they are double the level they should be. We also learned from that crash that corporate profits can be misleadingly inflated . Scandal after scandal suggests a similar situation in today’s US.

The effect is that its shareholders and businesses have thought their assets and the income which flows from them are worth more than long run reality permits. The overvaluation enables a sort of short-term double-dipping into nonexistent wealth, spending assets they have not got resulting, eventually, in a nasty deterioration in their balance sheets. A fall in US sharemarket prices reduces the wealth consumers think they have, and makes it harder for businesses to raise capital investment, adding to the collapse in economic confidence.

Economic contractions are not as rapid or spectacular as sharemarket collapses. There was over three years between the US share price collapse in 1929 and the nadir of the economic depression in 1933. An unfortunate consequence of the public’s demand for constant news is that journalists focus on instantaneously available data – primarily from financial markets. This not only gives the data (and its commentators) a significance out of line with its real importance, but it obscures the remorseless unfolding of the real economic story which affects production, growth, consumption, and jobs, even if it takes much longer than between a couple of sound-bites.

Wont the Bush tax cuts prevent a collapse? Leaving aside they were badly targeted – the greedy were too busy looking after themselves to consider their economic impact – the success of this sort of Keynesian reflation depends upon the state of the financial system (and also what happens to the external account – another US worry I have not space to discuss here). This has been vividly illustrated by Japan, where numerous attempts to use a fiscal stimulus to wrest the economy out of the stagnation of the last decade have failed. Their banking system has too many bad debts. The monetary injections seem to go into easing rort balance sheets rather than adding to spending. Some commentators fear the same will happen in the US. Enron, WorldCom and others (plus more to come I’m afraid) are not the fundamental problem, but are illustrations of the widespread financial imbalances which are thought to underpin a double-dipper, and which would make it so hard to deal with.

Any US stagnation or contraction will affect the world economy, and a world recession will impact on New Zealand – probably harshly. Yet we may be compounding the external shock – or rather the Reserve Bank’s monetary stance may be. Whereas the US Federal Reserve is maintaining steady interest rates, the RBNZ – fearful of inflation – has hiked ours. One effect will be to discourage house building, business investment and to a lesser degree consumer borrowing. The reduced pressure on resources will – the RBNZ hopes – discourage upward pressures on prices and wages.

But pushing up interests rates faster than the rest of the world is also encouraging a capital inflow which pushes up the exchange rate. The June 2002 Treasury Pre-Election Economic and Fiscal Update observed that ‘since the start of the year the New Zealand Dollar has appreciated against all major currencies, but particularly against the United States Dollar’. They reported the Trade Weighted Index (which measures the average change in the exchange rate) was 12 percent higher than at the beginning of the year.

The good news for the RBNZ and consumers is that the New Zealand dollar costs of imports are 12 percent cheaper. That will be an effective restraint on inflation. The bad news for exporters is that their New Zealand dollar return is 12 percent down too. Lower export profitability means they will find it harder to export. Since exports are the growth engine of the economy, the RBNZ monetary stance is cutting back New Zealand’s long run growth rate, just as it did in the second half of the 1980s. Because the world economy boomed then, the New Zealand economy only stagnated. We may not be so lucky if this time there is a world recession.

New Zealand’s Post-war Economic Growth Performance: Comparison with the OECD

Note: This is the first of a series of papers. The next two planned have secondary titles of ‘Comparison with Australia’ and ‘Productivity and Employment’

Keywords: Growth & Innovation

In Stormy Seas: The Post-War New Zealand Economy still contains the most extensive account of New Zealand’s post-war economic performance, despite being published some five years ago.(1) Since then the OECD has published a new data base. This note updates In Stormy Seas using that data base. It does not identify any new insights, confirming that the book’s analysis is reasonably robust to the data base, although it suggests the possibility of a slightly different account of the early 1970s. The paper concludes with some assessment of New Zealand’s economic prospects.

The Maddison-OECD Data Base

Angus Maddison has provided a annual data base for production and population of the world economy between 1950 and 1998 (with some data going back to the beginning of the Common Era, but not continuously).(2) This date base differs from that used in In Stormy Seas as follows:
* the OECD has now expanded to include the Czech Republic, Hungary, Mexico, Poland and South Korea. In addition the German economy includes that which was East Germany before 1991. A further problem is that the data for the Eastern European Countries is provided annually from 1990 only, although it is possible to interpolate the data back to 1950.
* Individual estimates are not provided for OECD members Iceland and Luxembourg, but they are included in an aggregate of 13 smaller Western European Countries (most of which are miniscule). All 29 countries are included in the aggregate series described here as OECD.
* the data is available only to 1998, and was updated to the end of 2002 using the estimates and forecasts in OECD Outlook (a procedure similar to that used in In Stormy Seas).

Maddison provides two primary series: population in the middle of the year and GDP for the calendar year for the period from 1950 to 1998. The GDP is measured for all countries in the same common prices (purchasing power parity) based on the 1990 year, so the volume GDP series of different countries comparable. This is similar to using the same prices for GDP from different years, which enables in the volume of production (real GDP) to be compared through time without being obscured by changes in prices and inflation.

The database also gives the ratio of the two series as GDP per capita. This ratio is often used as a measure for economic performance. A high figure indicates more output per person (but not necessarily per worker, since the employment to population ratio varies (3)). As a general rule the ratio rises most years, indicating that output per person is growing.

(While GDP per capita is often used as a measure of national welfare, there are a number of caveats.(4) An important one is that GDP is a measure of total production within a nation’s boundaries. It does not measure the national income because some domestic production will be owned by foreigners (such as corporations who have invested in the country) and some nationals will receive income from overseas sources.)

The Maddison GDP series does not correspond exactly to the official New Zealand GDP series, although the fit from 1977 to 1996 may be as close as rounding errors. Before then the error appears erratic rather than systematic. After, they are the consequence of recent revisions. The official series was used here instead, with the following changes.
* Maddison follows the OECD convention of treating GDP for March year X+1 as the GDP for calendar year X, a misalignment of three months arising from New Zealand using a different standard year from the OECD. This study, like In Stormy Seas, estimates the OECD data for the March year as a weighted average of calendar years X and X+1.
* there are no New Zealand volume GDP official data earlier than 1954/5, although there is a Treasury series, and also an alternative. (5) Both are problematic. This study uses the Treasury series, but cautiously interprets the early 1950s.
* In Stormy Seas adjusted the official New Zealand series for some data problems. Only the adjustment for the inventory mismeasurement in 1977/8 is made here. (6)

Given this enhanced Maddison data base, it is possible to calculate the GDP per capita for New Zealand and the OECD (as it was in 2002). The ratio of the two series gives a measure of production per capita in New Zealand relative to that for the OECD as a whole. The ratio is shown in the graph below. (Its table at the end of this article.)

Click on Graph for Fullscreen Image
Click on Graph for Fullscreen Image

New Zealand versus the OECD

The overwhelming message is that the ratio of New Zealand to OECD per capita has been decreasing throughout the post-war era. However the decline is not the same over the whole period. The graph shows five separate periods as trends.

1950/1-1966/7 Over this sixteen year period the ratio fell from about 147 percent of the OECD to 122 percent, an 18 percent fall.(8) This means the New Zealand economy was growing a fraction under 1.2 percent a year slower than the OECD average.

1966/7-1968/9 In late 1966 the New Zealand economy experienced a major (and ultimately permanent) external shock when wool prices fell sharply (by around 40 percent). The consequences of this shock is a central theme of In Stormy Seas.(8) The shock appears, in this series, to have impacted on the growth rate for only two years, with the New Zealand economy contracting while the world economy boomed. The relative fall was 8.5 percent in the two years.

1968/9-1986/7 The slower decline resumed, with the relativity falling 12.6 percent, from 111 percent to 97 percent. The rate of decline was a fraction more than .7 percent a year (about two-thirds of the rate of decline of the first period). There is a cycle peaking in 1975 and troughing in 1979. By the end of the period New Zealand had moved from being above the OECD average to just below it.

1986/7-1992/3 This is the second rapid decline. The New Zealand GDP per capita relativity to the OECD fell from 97 percent to 84 percent, a 14.3 percent fall in six years. This is an annual fall of 2.5 percent p.a. which means that the relativity fell more than in the 18 years from 1968/9 to 1986/7 and almost as much as it did in the 15 years from 1952/3.

After 1992/3 It is too early to identify the trend of the 1990s. The graph shows a flat trend, with a strong cycle. (9) But it could be argued that the trend was slightly up. Whichever, the effect was very small compared to past trends.

Why the Poor Post-War GDP Performance?

In Stormy Seas identified a set of explanations for the long term decline of the New Zealand economy:

1. Post-war recovery in the 1950s, when the war devastated European continent rapidly recovered its productive capacity, catching up to those which had not been invaded – like New Zealand.

2. Higher population growth than the OECD average, since population growth tends to slow down per capita economic growth.

3. ‘Convergence’, the effect that high GDP per cap countries grow more slowly than low ones, because the latter can adopt cheaply the technologies and methods that the former pioneered. (Note that this effect is now favourable to New Zealand, now that it is on a relatively low income, which may explain the slowing down of the rate of decline.)

4. The secular deterioration in the terms of trade for pastoral products which dominated New Zealand exports in the first part of the period, and remain important in the second.

In addition In Stormy Seas identified two shocks which sharply lowered the relativity.

5. The (permanent) collapse of the price of wool in late 1966; and

6. The overvaluation of the real exchange rate from the mid-1980s, which slowed down the growth of exports, the engine of growth of a small open economy, while encouraging imports to wipe out much domestic production. (There is more discussion in the next section.)

The reworked data is completely consistent with this account, despite the revised data base and the addition of more countries to the OECD list.

One apparent inconsistency between the two accounts might be that the 1966 wool price shock seems to have had a shorter impact (of two years) in the reworked data compared the original In Stormy Seas account which argued it took at least ten years for the price downturn to work through the economy. However any inconsistency is resolved by noting the In Stormy Seas account is based not only on this series but on the structural changes evident in the 1970s, and that divergences between the New Zealand and World economic cycles which have to be taken into consideration when short term comparisons are being considered.

Even so, this author of In Stormy Seas is not uncomfortable if the preferred explanation is a short sharp fall after 1966 followed by a slow decline, in contrast to the book’s account of a longer fall and then a flattening of the relativity from the mid-1970s to the mid-1980s. Either option discounts the conventional wisdom’s belief that the entry of Britain into the European Union in 1973 was the key element in the path of the post-war economy. It was one of a myriad of changes.

The 1980s and 1990s

The decade from the mid 1980s merits some comment, as the pattern becomes clearer. The introduction of new members to the OECD in the 1990s lowered the average GDP per capita, When all the new members are included New Zealand was close to the OECD average in the early 1980s. In the 1984/5 year it was about 100 percent of the average, although there is a margin of error.

By 1992/3 the level was about 85.5 percent, a fall of about 14.5 percent in seven years. As the level is still about 85.5 percent in 2002, the arithmetic says that as New Zealand being below the OECD average is entirely due to the fall which occurred in the seven (or slightly fewer) years.

Why this fall? In Stormy Seas details the poor export performance of the period, attributing that to the overvalued real exchange rate (a conclusion bolstered by the high rate of importing during the period). (10)

Export Performance

In Stormy Seas placed considerable stress on the weak export performance of the New Zealand economy as the reason for the poor overall performace of the New Zealand economy. Regrettably Maddison (2001) does not provide as detailed a data base for (merchandise) exports, providing broad statistics for only 1870, 1913, 1929, 1950, 1973, 1990, 1998, and in little country detail.

New Zealand’s merchandise exports made up 1.33 percent of the OECD total by value in 1950, falling to .61 percent in 1973, .36 percent in 1990, and .30 percent in 1998. This is a far more dramatic fall than the GDP per capita decline.

This is consistent with the general theme of In Stormy Seas. Once a more comprehensive data base becomes available, more work can be done.

Prospects for the New Zealand Economy

That the relativity does not seem to have deteriorated in the last decade suggests that the New Zealand economy now grows at about the same rate as the OECD as a whole. Moreover, most of the factors which In Stormy Seas identified as giving poor relative growth of the New Zealand economy do not all apply.

1. The war recovery is long completed.

2. New Zealand population growth is slower, and while still higher than some OECD economies, the ageing effect is not so pronounced.

3. Being below the OECD average means the convergence effect now favours New Zealand. In practice that means there are gains from importing foreign technologies.

4. While the secular deterioration of the terms of trade of pastoral products may continue, they are now a lesser share of total exports. It is not obvious that the terms of trade for the remaining (and largely new) exports are subject to a secular decline (although they will fluctuate with world economic conditions).

5. External shocks of the magnitude of the wool price collapse peculiar to New Zealand are not likely (although one could think of circumstances in which they might occur – such as local outbreak of foot and mouth disease.)

6. However, undoubtedly there remains a danger that the exchange rate will remain overvalued, especially as a means of fighting inflation.

In summary, the apparent stability of the relativity is understandable. (Arguably it would have been stable from the late 1970s, if the exchange rate overvaluation from the mid 1980s had not occurred).

One could also argue that add a number of other recent policy changes should contribute to a faster economic growth rate. However it is too early to see a new upward trend.

Appendix: Rankings

As discussed in In Stormy Seas rankings are problematic, not only because of accuracy but because they are misleading about progress. It is like being in a running race so that a runner slower than the pack may remain ahead of it for long periods, and then suddenly get passed by a bunch.(11) Even so some were reluctantly published in the book. For similar reasons, that is there is a public demand for the figures, and it is better to publish the best available, rather than have them rely on inferior listings.

The figures here based on Maddison with some interpolations for countries he does not report, using the official New Zealand series. The details are in the table.

1950: FIFTH
The following (OECD) economies (in probable rank order) already had a higher GDP per capita than New Zealand in the early1950s.
United States
Switzerland
Luxembourg(?)
Canada

So New Zealand was ranked fifth.(12) New Zealand was then about 48 percent above the OECD average.(13)

1960: FIFTH
No additional OECD country’s GDP per capita was above New Zealand by 1961. So New Zealand was still fifth, but it was now only about 31 percent above the average.

1970: ELEVENTH
In turn, the following six OECD countries’ GDP per capita became higher than New Zealand’s between 1961 and 1970, additional to the earlier four.
Denmark
Sweden
Australia
Netherlands
France
Iceland (?)

New Zealand was now 11th , and its GDP per capita was about 111 percent of the OECD average.

1980: NINETEENTH
In turn, the following eight OECD countries’ GDP per capita became higher than New Zealand’s between 1975 and 1980, additional to the earlier eleven.
Belgium
Germany (West & East combined)
Norway
Austria
United Kingdom
Japan
Italy
Finland

New Zealand was now 19th , and its GDP per capita was about 96 percent of the OECD average.

1997: TWENTIETH
In 1997 Ireland’s per capita GDP passed New Zealand’s. So New Zealand became 20th , when its GDP per capita was about 86 percent of the OECD average.

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Endnotes
1. B.H. Easton (1997) In Stormy Seas: The Post-War New Zealand Economy (University of Otago) especially Chapter 1.
2. A. Maddison (2001) The World Economy: A Millennial Perspective (Development Centre Studies, OECD)
3. B.H. Easton (2002, forthcoming) New Zealand’s Growth Post-war Performance: Adjusting for Employment’. Also In Stormy Seas, p.189-193.
4. In Stormy Seas, p.15-17.
5. B. H. Easton (1990) A GDP Deflator Series for New Zealand: 1913/4-1976/7 (Massey Economic Papers, B9004) p.83-103.
6. B.H. Easton (1989) How Accurate are the GDP Statistics in the Long Run? (Hodge Fellowship Report; 9, mimeo, Wellington). Also In Stormy Seas p.281-283.
7. The adjustment for systematic measurement bias would not affect the interpretation given below, other than to raise the growth rate a little. That depress the ratio level earlier in the period, because 1990 is the calibration year for comparisons. .
8. The 1950/1 figure is the trend estimate not the actual, because of the problems of the pre-1954/5 data.
9. See the 1970s for an earlier case in which the cycle temporarily obscured the trend.
10. In Stormy Seas p.231-250. Also B.H. Easton (1999) The Whimpering of the State: Policy After MMP (Auckland University Press) p. 49-62.
11. In Stormy Seas p.73-88, 139-168.
12. Because the NZ series has not been adjusted for the secular measurement error, this ranking places New Zealand above Australia, rather than marginally below it as occurs in In Stormy Seas p.27.
13. The trend rather than actual ratio is used here.
14. However the Spanish GDP per capita came close to the New Zealand level.

March year NZ/OECD NZ place/28
1950 .. 5
1951 1.60 5
1952 1.52 5
1953 1.44 5
1954 1.37 5
1955 1.42 5
1956 1.38 5
1957 1.34 5
1958 1.36 5
1959 1.35 5
1960 1.31 5
1961 1.32 5
1962 1.29 5
1963 1.25 6
1964 1.25 6
1965 1.24 6
1966 1.24 6
1967 1.22 7
1968 1.15 9
1969 1.11 9
1970 1.12 10
1971 1.11 11
1972 1.09 11
1973 1.07 11
1974 1.08 11
1975 1.10 11
1976 1.10 12
1977 1.05 15
1978 0.99 16
1979 0.96 17
1980 0.97 19
1981 0.97 19
1982 1.01 19
1983 1.01 19
1984 1.00 19
1985 1.00 19
1986 0.98 19
1987 0.97 19
1988 0.94 19
1989 0.91 19
1990 0.89 19
1991 0.87 19
1992 0.84 19
1993 0.84 19
1994 0.87 19
1995 0.89 19
1996 0.88 19
1997 0.86 20
1998 0.85 20
1999 0.83 20
2000 0.84 20
2001 0.84 20
2002 0.86 20

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The Political Economy Of Robert Chapman

Revised version of a paper presented to the 1996 conference of the New Zealand Political Studies Association, Auckland.

Keywords Political Economy & History

Robert McDonald Chapman began his work on the New Zealand electoral system in an era where there were no opinion polls, no computers, and little readily available social data. It was a pioneering if, by today’s standards, primitive research program. which made him the father of psephology in New Zealand.(1) Yet his was not a mechanical manipulation of the available electoral data. Behind it all was an account of the political economy of New Zealand. It is this aspect that this paper recalls an updates.

Chapman’s key ideas are in the final chapter of the seminal study of the 1960 election which he co-authored with Keith Jackson and Austin Mitchell.(2) It begins:

“A basic social and sectional division in New Zealand separates city from country and this has revealed itself in our politics for as long as there have been parties. It is much more than a line separating two ways of making a living or two economic interest groups. The division passes between two approaches to social questions. It delineates different psychologies arising from two sorts of experience of life. It is so fundamental and arose so early – it is to be found in the 1840s – that it has long since found stable expression in the two-party structure itself, one party urban, one primarily rural, and within constituencies as a predictable and usually unequal balance of sections. Intercommunication between the two nations, rural and urban, is constant. Country families see their children go to the cities, parents retire to the towns and a high proportion of farmers, as recently as the 1930s, were city bred. Underneath the surface interchange, the geography of attitudes nevertheless remains fixed, while above it passes the political and economic weather, with an occasional cloudburst in one section or the other, but usually in fluctuations common to both because both sections are interdependent parts of the one economy.”(3)

The chapter divides the 80 electoral seats of 1960 into four groups: Maori (4), Main Centre (33), Farmer Seats (20), and 23 seats which were not entirely urban, but even so more than half lived in boroughs or town districts. This final group was then split into 10 provincial town seats, with the residual of 13 “mixed town and country” seats. The chapter looks at the all the categories, and is especially interested in the main city seats, plus a number of special topics (including non-voting, subsequently a favourite Chapman concern).

Mixed Town and Country Seats(4)

Chapman’s prose, which evokes a New Zealand that is now more a nostalgic memory than reality, draws attention to the economic structure of these mixed seats.

“A dozen years ago in analysing the elections between 1908 and 1935 I marked out a class of seats in which a distinct majority of farmers was admixed with a minority of townsmen. Changes of opinion in this class of seat won or lost the elections of the 1910s and 1920s and they proved more, not less, responsive than purely rural seats to whatever was affecting the farming community. Merchants in these service towns felt the changes of the market in exaggerated form as their customers increased or cut their orders according to the pattern of receipts in London. It was always possible for the farm family to live lean on the farm’s ancillary products, but a shopkeeper with full shelves and little trade in a stagnant district was driven to strike back at the situation by blaming the Government or demanding of candidates that they secure developmental money and works or fresh settlers to get the district moving. These demands were not different from some, at least, of pure farmer demands; they were simply made more sharply and more speedily by sufferers from the economy who lived in little towns. … The crux of the political question posed by the growing towns seems to lie in whether multiplying the self-employed and service employees, the shop assistants and sales clerks and small shop and storekeepers, will result on balance in an addition to the Labour vote so heavy as to outweigh the farmer, or else give rise to a vote sufficiently split by sympathy with the customer and identification with his values that National wins because nowadays the customer is always to the Right.” (5)

While he did not discount the relevance of income, Chapman was not trapped in an overpowering vision of voting outcome being determined by the balance between the rich against the poor. While there were extremes of wealth and poverty in New Zealand at that time, the New Zealand income distribution was then compact by international standards, in which case income may not be a powerful discriminator of voting behaviour.(6) Instead Chapman focuses on the voter’s place in the economic structure, as well as income and class.

Much of what Chapman’s writing about social behaviour in the mixed electorates is seat-of-the-pants conjecture, based on personal observation, rather than the results of systematic analysis. Over two decades later, anthropologist Elvin Hatch’s study of a rural South Canterbury community, broadly confirmed Chapman’s account of how social class was practically moderated by the community and economic requirements of pastoral farming.(7)

Large Town Constituencies(8)

Chapman repeats the broad outlines of his mixed town and country seats in his discussion of the provincial towns.

“The large towns balance within themselves grades which in a city might have a constituency largely to themselves. Add to the urban accompaniments in a large town and immediately the city-style sectional grades is affected. The same addition of say, fertilizer works and its labour force, will also alter the balance between rural and urban orientations. Thus two kinds of analysis interest, two categories are found, two perimeters parallel one another in the large towns: rural/urban on the one hand and higher and lower socioeconomic grades on the other. Indeed there is an overlap, almost a fusing of viewpoints in the large towns between the attitude of those who think with the countryman, being themselves proprietors, agents, professionals and service employees, and those who, belonging to the same groups, base their political judgements on opposition to the party of the unionists, industrial workers and of the lesser grades generally. The converse is rather less true. Unionists and industrial workers give little evidence of thinking at all along the urban/rural dimension or in any way taking up a position governed by hostility to or identification with the rural community and its interests. Rather their attention and their politics seem rivetted to the vertical dimension of status and possessions visible in the cities. They treat their environment as though it were altogether urban, which in their factory and dormitory suburb environment it is, and recognize `our party’ accordingly. `Our party’ for the other side in the large towns may be `ours’ in the first place because it is the party of people like us or because it is thought to recognize enterprise in the small owner and keep an eye on the militant unions, or primarily because it is envisaged as understanding the farmer and we all depend on the farmer. Such attitudes, of course, sit easily in combination and together they make it possible for the National party to battle strongly in what at first glance ought to count as wholly urban and probably as enemy territory. The result is an overriding likeness in this group of electorates which straddle the dividing lines of New Zealand sectionalism, predominantly service towns slightly to the Right, more industrial towns more to the Left, but all within reaching distance of the 50 per cent line. In consequence the class of large town electorates perform nearest to the New Zealand political norm for they contain both the major divisions of New Zealand life. Some are microcosms of all New Zealand, rurally oriented and urban minded in balance, some merely concentrate the sectional appositions of our cities; but together the swings of large town opinion contribute much to the fate of the parties and altogether they may be truer mediators between city and country, matching the inclinations of both, than the mixed electorates, committed as they are to one pole.”(9)

Chapman ranks the ten seats by their voting behaviour.(10) His tabulation is an early version of the bottom of a electoral swingometer, which did not become popular until the mid 1970s.(11) Perhaps had Chapman had the computing power that became available only a few years later, the 1962 chapter would have had a full blown swingometer.

The Underlying Political Economy

Chapman has an New Zealand political economy implicit in his studies. Economists later called it the “two-legged” economy.(12) The rural pastoral farm leg earned foreign exchange for importing and debt servicing, while the urban industrial leg used imports to produce goods and services for the domestic economy, creating jobs for those whom the pastoral sector and its satellites could not directly employ. One of the strength of Chapman’s analysis is to remind us the rural leg included a host of other activities and occupations which were dependent upon the farm sector, as well as the farmers themselves.

Out of this bifurcated economy there had evolved two distinct political parties – almost equal in size – with very different social bases reflecting the two main components of the pastoral settlement political economy, modified a little by income levels. National was the party of the countryside and the farmer with support from urban commerce: Labour was the party of the city and the industrial worker, with a component of the poor rural worker.

The policy debate about economic strategy reflected those two legs. Those in the rural sector argued for low – preferably zero – protection because, they said, high levels reduced economic efficiency. The urban sector argued for protection to generate jobs, pointing out that economic efficiency applied only to the employed, and free trade had no means of dealing with the inefficiency of unemployment. This is not the place to evaluate the efficacy of the two prescriptions. Here we note that it seems likely that the special circumstances of the pastoral sector probably meant that any efficiency losses from protection – assuming there was full employment – were small. Probably the main effect was to transfer the high land rents from pastoral farming to the nation as a whole, and the landless in particular, through higher wages and broader government services. The allocation of this rent was at the heart of much of the policy debate at the time.(13)

There is a yet unresolved question of when the two-legged economy evolved. At the turn of the century the economic structure was probably still dominated by the pastoral export sector. There was a manufacturing sector, but when Gary Hawke divided the secondary sector into those who were in “industry” and those who were in “handicrafts” – the first category covered those who appeared in the factory statistics, while the second were those manufacturing workers in the population census who did not work in factories – there were more handicraft than factory workers until the beginning of the twentieth century.(14) As the Caversham studies show, even factory workers were then still organized more on a craft basis than an industrial process basis.(15)

It seems likely that the industrial worker evolved in the middle part of the twentieth century, rather than the nineteenth. The big change in the freezing works from craft butchering to the industrial chain really occurs in the late 1920s and early 1930s, car assembly plants occur a little later. This transformation of manufacturing was crucial in the growth of the Labour Party. Obviously there is no day in which the two-legged economy sprung fully clothed into the world, but at some time – by the 1930s – it became sufficiently large to have a substantial impact on the political system. This contrasts with the myth of Labour’s origins in the mines of the West Coast. Historically that is true, but Labour had to move outside there into the urban factories to become government. It is sometimes commented that Labour under went a transition as it moved from the leadership of mine worker Harry Holland, MP for Buller, to brewery worker Michael Joseph Savage, MP for Auckland West. The change symbolizes the changing political economy to which Labour was responding.

Suppose we turn the swingometer upside down. It now looks like two legs of the economy, with the one the import substituting domestic economy, the other the export oriented farm economy? The marginal seats – especially those mixed ones – being the crotch, where the bowed legs join together.

The Urban Seats

Yet it would be misleading to say that Chapman had theory based only on economic structure. A central part of his account is the rising role of the urban seats. He sees cities allowing diversity but it in that diversity there is specialization. Given his prime source of data is electoral booths, the specialization he observes is a stratification by location. There are safe Labour seats, safe National seats and marginal ones, which he argues were differentiated by income. Given the primitive data base it was a heroic effort to trace this.

The result was a number of social groups found themselves in ambiguous locations. Freezing workers were politically with Labour, but their economic interest is in the pastoral export leg. Manufacturers were in the domestic sector, but politically with National. These effects moderated the purity of the political divide being simply along political economy lines, because each party had an interest in both legs, even if there was a preponderance in favour of one. Thus there was not great differences in economic policy between the parties.

About the time that Chapman was writing various people claimed that New Zealand was a classless society. For instance Arnold Nordmeyer, then leader of the Labour Party, said to the 1963 conference of the Federation of Labour, “We are one people and the sooner we realize there are no real class divisions in this country the better it will be for us all.” It was even claimed that Keith Sinclair said so in his immensely popular history. (17) In fact Sinclair wrote “New Zealand is not a classless society. It must be more nearly classless, however, than any other society in the world.”(18) Since for logical reasons there exists one society for which this statement is true, Sinclair may be accused of no more than suffering the LBW syndrome – “leading the bloody world” – which he himself first identified. (He may even have been correct.)

Sinclair’s statement is backed only with a series of anecdotes and otherwise unsubstantiated impressions. Chapman offered an analytic account of why class might not be so important in New Zealand as elsewhere; why the imposition of a European account of class structure to New Zealand was not entirely appropriate.Moreover social scientist Chapman had an elaborated enough model to make predictions about future developments of the class structure. He expected the urban centres would grow, and as they did class stratification would increase. As it happens the prediction never had the opportunity to be properly tested.

The New Political Economy

In the mid 1960s the two legged economy began to fragment. The terms of trade, the price of the pastoral exports relative to the price on imports had been under pressure since the mid 1950s, but the collapse of the wool price in 1966, together with ongoing weaknesses in the price of red meats and butter throughout the post-war era, meant that the pastoral sector could no longer carry the foreign exchange earning burden the economy required to maintain a high standard of living.

Fortunately a number of other industries developed rapidly as exporters: tourism, forestry, fishing, horticulture, manufacturing. (At the same time – socially and politically critical as well as economically so – the exporters developed new markets especially in Australia and East Asia). The story of this diversification dominates the political economy in the last third of the twentieth century (although there is also a diversification of social behaviour of which the feminist revolution and the Maori renaissance are the most spectacular examples). The economic diversification was not just a matter of a new bunch of industries, occupations, and activities joining the export leg. Now there was no significant land rent to transfer to support the domestic leg, and so it collapsed. Just about all industries became a part of the export effort – either directly or indirectly by supplying exporters.

Inevitably the political economy of the post 1966 diversified economy has yet to be delineated in any detail.(19) My remarks here are confined to the impact on the electoral swingometer, which I use as a crude summariser of Chapman’s broad thesis.

The swingometer worked in the Chapman model because while there were two significant dimensions: urban-rural which were represented in the marginals by the provincial seats, and rich-poor represented by the marginal city electorates. Either because the two dimensions were independent of one another, or because of a high degree of association, they could be mapped onto the same scale.

There is a further requirement for the swingometer to work. It is not just a matter that geographical clusters have a broadly uniform swing, something which Chapman demonstrates for the seven elections, but the swing must be able to be characterized by a single parameter. This is true only where there are two parties. The switch matrix which characterises electors changing their party vote has two parameters, but they may be condensed to a single one. Once there are more than two parties the number of parameters increases, but regrettably not in proportion to the party number but roughly proportional to the square of that number.(20) Thus when there are three parties, three parameters are needed. For four it is six. So it becomes impossible to represent a mutli-party race by a simple swingometer, unless the empirical conditions are exceptional.

The first-past-the post electoral system maintained the hegemony of two parties till 1993, so the swingometer could continue. Even so if Chapman were to repeat his analysis for, say, the first seven elections after 1960 the pattern he found would not be so evident.(21)

However with the collapse of the old political economy, the electorate could no longer be strung along a single dimension in the way that Chapman and the swingometer could locate them. More recent electoral studies have had to use two and three dimensions.(22)

This may not just be the bigger data base and the greater computing power. It almost certainly reflects the greater social and economic diversity. That certainly is the view of a good number of today’s political parties who, no longer constrained by FPP, seek niche groups.

But if the Chapman account of political behaviour, and its successor swingometer, is dead we have to ask what is the alternative? It is not just the new voting environment. At the moment we are overwhelmed by data, but there is no compelling organizing theory to go with it. It is ironic that if Chapman was handicapped by a lack of data and a lack of computing power, he was also blessed by it, because it forced him to seek a simple – yet powerful – theory to go with the facts available to him. It is probably too soon to expect an overall coherent account of the politics of the new political economy of New Zealand to replace that which Robert Chapman gave us in the early 1960s.

Endnotes
1. Chapman’s collected works are published in E. McLeay (ed) New Zealand Politics and Social Patterns: Selected Works of Robert Chapman, Victoria University Press, 1999.
2. R .M. Chapman, W. K. Jackson, & A. V. Mitchell New Zealand Politics in Action: The 1960 General Election, Oxford University Press, London, 1962.
3. op cit p.235.
4. In 1960 they were Ashburton, Bay of Plenty, Marlborough, Marsden, Rangitikei, Rotorua, Tauranga, Wairarapa, Waitaki, and Westland.
5. op cit p.236, 238.
6. B.H. Easton Income Distribution in New Zealand, NZIER Research Paper No 28, Wellington, 1983.
7. E. Hatch, Respectable Lives: Social Standing in Rural New Zealand, University of California Press, Berkeley, 1992.
8.In 1960 they were Gisborne, Hamilton, Hastings, Invercargill, Napier, Nelson, New Plymouth, Palmerston North, Timaru, and Wanganui.
9. op cit p.242.
10. op cit p.240. There is also one for the Marginal City Seats at p.246.
11. A. McRobie & N. Roberts, Election ’78, John McIndoe, Dunedin, 1978.
12. B.H. Easton, In Stormy Seas, Otago University Press, Dunedin, 1997, p.47,83.
13. The argument is elaborated in “Prescription or Poison: `New Zealand can be Different and Better’ by Wolfgang Rosenberg”, New Zealand Books, December 1993, p.5-6, and Easton (1997) op cit Ch 5.
14. The terminology is a little misleading, since the handicraft category includes self employed workers not employing labour (e.g. a tailor). See G. R. Hawke, Disaggregation of the New Zealand Labour Force, 1871-1936, VUW Working Papers in Economic History, 79/1, Victoria University of Wellington Economics Department, 1979.
15. E .A. Olsen, Building the New World: Work, Politics and Society in Caversham, 1880s-1920s, Auckland University Press, 1995.
16. Reported in W.B. Sutch, The Quest for Security in New Zealand: 1840 to 1966, Oxford University Press, Wellington, 1966, p.405. Nordmeyer’s first seat, incidentally, was Waitaki, one of Chapman’s mixed country and town electorates, and close to where Hatch did his fieldwork.
17. e.g. D. Pitt (ed) Social Class in New Zealand, Longman Paul, Auckland, 1977.
18. K. Sinclair (1959) A History of New Zealand, Penguin, London. p.276.
19. But see Easton (1997) op cit.
20. The number of parameters required to characterise a switch matric is n(n-1)/2, where n is the number of parties.
21. In practice the exercise would be very difficult because electorate boundaries were less stable, that itself being indicative of the rapid changes going on in New Zealand society.
22. e.g. J. Vowles, & P.Aimer (1993) Voters’ Vengeance, AUP, Auckland Press; J. Vowles, P. Aimer, H. Catt, J. Lamare, & R. Miller (1995) Towards Consensus: The 1993 Election in New Zealand and the Transition to Proportional Representation, AUP, Auckland.

Corporate Chaos: Is the Collapse Of Enron and Worldcom the Beginning Of an End?

Listener 27 July, 2002.

Keywords Business & Finance, Macroeconomics & Money

Because there is no coincidence of wants, money acts as an intermediatory in the conversion of something we have (including our labour) into something we want (perhaps the groceries). This role can be summarised as C→M→C* where a commodity (C) is converted (sold) into money (M), which is used to purchase a different commodity (C*). In this way money facilitates the specialisation of production upon which modern standards of living depend, because it enables each to concentrate on producing one thing well, and convert it into all the other things they want to consume.

However over time, the commodity to money to commodity circuit gradually reversed to M→C→M+, where the commodity is the intermediatory in the increasing of money holdings. Money becomes something of value in itself, rather than a means to an end. We became obsessed with it, as it began to shape the way we thought and what we valued, such as in the pretence that the wealthy are more beautiful, more intelligent and more refined than the rest of us.

The next step was the bypassing of commodities in the making of money, which could be described as M→FP→M+, when money (M) gets converted into Financial Paper (FP) which is converted into more money (M+), without much involvement of real goods and services. Energy ex-giant Enron, and the telecom ex-giant WorldCom are examples of corporations which have gone bust from their paper shuffling (although they are not alone). Yet the US energy system and telecom systems remain largely intact – the C has been out of the circuit.

The commodity-less circuit requires injections of additional money – as investors forgo the immediate opportunity to purchase real goods and services in exchange for financial paper. The purest form is the ‘Ponzi scheme’, named after a US fraudster of the 1920s. He promised a 100 percent return on an investor’s deposit in 90 days. As more people invested more funds, their later deposits were used to payout double the earlier investment. The apparent (but short term) success of the scheme attracted more funds, the upward spiral continuing until there were insufficient new deposits, and the scheme collapsed. Ponzi schemes are illegal in New Zealand, but some flourished recently in east-central Europe. Pyramid selling, also illegal, is another scheme for attracting cash at unreasonable returns based on a spiral to infinity.

In order to work, such schemes have to seem plausible. Suppose the greedy and gullible investor is presented with shares (financial paper) in an apparently sound company. The company can issue as many shares as it likes providing there are those willing to purchase them. Which they will, if they believe the share price will go up. That means some holders of the shares – those who bought them cheaper or paid as a part of their remuneration – can sell out, converting their financial paper into real money. This works as long as the share price continues to rise, or investor believe it will. Ideally the corporation should generate profits which underpin the beliefs from the commodities it deals in (it says it does, of course) but that is a hard yakker. It is easier to manipulate public expectations (corporate public relations bills can be huge) and, where necessary, to manipulate the financial and accounting information, which underpin the financial paper. Not all corporations concentrate on the hard yakker.

In principle that manipulation is restrained by accounting rules, and by auditors. But in the case of Enron the auditors failed miserably to assess the misapplication of the rules. (In any case there were glitches in the US accounting rules – especially that employees could be paid with shares without affecting the reported corporate profit). The case of Worldcom appears to involve pure accounting fraud. As the deceit unwinds, the certainty is that some people have parted with real money for the pretend money of financial paper – shares in worthless corporations. Their real money will have gone (illegally and legally) to others – often to people who had created the financial paper and sold it for real money. Investors overlooked there is a M→FP→M- circuit which complements the M→FP→M+ one. Reminded by the crashes, they are poorer, angrier, and vowing vengeance.

The threat is not only that these shocks may be sufficient to tip the US economy back into recession, with the rest of the world following. The longer run consequence may be a collapse of the triumphalism of US conservatism with its populist slogans of ‘freedom’, of accusing all forms of government of being ‘coercive’, of attacking the welfare state, of ‘greed is good’. Their corporate doctrine of maximising ‘shareholder value’ and claiming regulation inhibited ‘enterprise’ is likely to crash too. American business may rebound in the long run, but its new ethic may be more like that which flourished under Roosevelt. Perhaps American economic hegemony will also decline. We may be at a turning point of world history greater than the collapse of the Berlin Wall.

The Historical Context Of the Woodhouse Commission

Revised version of paper for Looking Back at Accident Compensation: Finding Lessons for the Future. Victoria University of Wellington Law School: 2-3 August: 2002. [1]

Keywords Political Economy & History, Social Policy

Although it is rarely presented this way, policy making is a problem solving exercise. At the heart of the success of any solution is how well the problem is addressed.[2] This approach, analogous to Karl Popper’s approach to the development of science requires us to be ‘as clear as you can one can about the problem, and watch the way it changes’.[3] A task then, of an historian, is to identify the problem or problems which drove a solution.

The Historical Origins of the Practice of Compensation

The principle of compensation for personal injury seems to have arisen in Europe as a means of offsetting retribution by the injured and their families. As J. G. Fleming, who was cited by the Woodhouse Commission, comments:

“At the dawn of common law and for long thereafter, crime and tort covered much the same ground, both stemming from a common desire for vengeance and deterrence and distinguishable only by the nature of their respective sanctions. … Tort liability … provided a means whereby the victim could be ‘bribed’ into abstaining from retaliation by being able to compel the perpetrator to render him monetary compensation for the wrong.”[4]

In pre-industrial societies this was probably a rough and ready solution to a practical problem. The Maori had a similar principle of utu. [5] No doubt many minor infringements in European life were dealt with by an informal-utu like process within the community, but the existence of the supreme authority of law limited the grievance process to creating the further retaliation which Maoridom got bogged down in on occasions.

However these solutions to the problem of how to limit vengeance and deter injury proved inadequate in the industrial society. Communities were broken up and interactions – and the possibility of injury – between strangers became more common. The breakdown of feudal and quasi-feudal relations changed the obligations of employers towards employees. New production processes (including new modes of transport) generated greater possibilities of accidents both in terms of number and degree of injury. Perhaps too, as life lengthened and expectations of an after-life shortened, the importance of fair resolutions became a matter of concern.

From the nineteenth century British common law attempted to cope with the new circumstances by

“breaking the narrow compass within which the embryonic law of negligence had been gestating, extending it beyond the time hallowed consensual relations of doctor and patient (and so forth) into a vast range of informal situations symbolised by collisions at intersections or level crossings, open coal chutes in public streets, and bags of flour dropping from warehouses on passing pedestrians.” [6]

But common law extensions proved inadequate, especially for factory injuries. A notable failure was the ‘fellow-servant rule’ usually ascribed to Lord Abingner’s opinion in Priestly v. Fowler in 1837, who held that in employment relationships of tradesmen the servant had no cause of action following an employment accident.[7] The opinion, described as ‘diffuse and unperceptive’, seems more an eighteenth century concern about the disruptive effects of a master’s liability upon his household staff, than a recognition of looming nineteenth century industrial realities.[8]

The ‘doctrine of common employment’ was put on a more rigorous basis by chief Justice Shaw of Massachusetts in 1844 who observed there was a contract between employer and employee which did not usually mention indemnification for injury from industrial accidents (whereas there was no such formal contract between an employer and the public). The notion was that an employee took into consideration the risk of industrial accident when he or she entered into the employment contract, and the remuneration included that. (Presumably the employee could use some of the remuneration to purchase insurance, although of course few did.) [9]

Whatever the technical underpinning, it was not a particularly realistic account of the situation in a large industrial establishment where ‘a servant has as little opportunity of guarding against negligence of many of his fellow servants as a member of the public; and he could hardly be said to have consented to abide risks of which he had neither knowledge nor means of knowledge .’ W.S. Holdsworth goes on that ‘[t]he limitation thus imposed on the liability of employers was far too strict – a truth which is emphasized by the fact that no other country in Europe has adopted any similar doctrine.’[10]

Thus statute law began to take a role, probably beginning with the British Fatal Accidents Act 1846, which was imported to New Zealand via the English Acts Act 1854.[11] Bismark’s Germany enacted statutory protection for workers in 1884, and a decade later the British Parliament passed the 1897 Workmen’s Compensation Act with New Zealand following with the Worker’s Compensation Act in 1900. As J. W. McDonald shrewdly observes of the British statute:

“It was immediately occasioned by the agitation in respect of the question of contracting out, but the true foundation of the measure is found in the development of the industrial system and the inadequacy of the common law and existing statutory law to deal with the problems, social and economic, which the system brought in its train.” [12]

A third statutory strand was the Social Security Act of 1938, which provided benefits for those who were sick or ill, the effect of which was to provide a minimum level of income for those who were injured. Unlike workers’ compensation that income was not earnings related, and there was no compensation where a person returned to work even though their earning capacity and enjoyment of life had been diminished.

The ACC, based on a contributory scheme providing earnings related benefits, sits uneasily beside the Social Security system funded from general taxation with flat rate benefits. The best opportunity to integrate collapsed with the revocation of the Third Labour Government’s New Zealand Superannuation Scheme, with its first tier social security based first tier, and a second tier which was like ACC in that it was contributor and earnings related (although contribution determined).

Over the years the workers’ compensation law was extended, but in principle it did not cover out-of-work incidents (although it was common to claim for out-of-work injuries as occurring on the work-site – most notably, given strenuous weekends, early on Monday mornings). By 1928 it became necessary to make statutory provision for another major source of injury, the motor vehicle, when New Zealand passed the Motor Vehicles (Third-party Risk) Act which required vehicle owners to take out compulsory insurance to cover other people’s injuries.[13]

Any longer history would observe that there was a continuing refining of the common law and statutory coverage over the subsequent period. In 1956 there had been a consolidation of the Workers Compensation Act, and in 1961 there had been a committee of Inquiry into Absolute Liability. In 1966 the Government established a Royal Commission to inquire into and report upon Worker’s Compensation. (The 1963 Criminal Compensation Act was also incorporated into the final scheme.)

The Problem that the Woodhouse Commission Faced

Although the terms of reference of the Royal Commission are bland, but its report opens with a feisty summary under the heading ‘The Problem’:

“One hundred thousand workers are injured in industrial accidents every year. By good fortune most escape with minor incapacities, but many are left with grievous personal problems. … This is not all. The same work force must face the grave risks of the road and elsewhere during the rest of every 24 hours. … The toll of personal injury is one of the disastrous incidents of .social progress, and the statistically inevitable victims are entitled to receive a co-ordinated response from the nation as a whole. They receive this only from the health service. For financial relief they must turn to three entirely different remedies, and frequently they are aided by none. The negligence action is a form of lottery. In the case of industrial accidents it provides inconsistent solutions for less than one victim in every hundred. The Workers’ Compensation Act provides meagre compensation for workers, but only if their injury occurred at their work. The Social Security Act will assist with the pressing needs of those who remain, provided they can meet the means test. All others are left to fend for themselves. Such a fragmented and capricious response to a social problem which cries out for co-ordinated and comprehensive treatment cannot be good enough. No economic reason justifies it. It is a situation which needs to be changed.”[14]

So the compensation problem has evolving somewhat from the medieval one of resolving vengeance and encouraging deterrence (although the Royal Commission was insistent that prevention was a part of its scheme’s five principles).

However there was one other problem which is not explicitly mentioned in the opening, but which was crucial to its resolution. Not only was the existing system fragmented and capricious, it was very expensive. The Royal Commission thought the administration expenses of the scheme were 42 percent of the of the amount paid out in claims. (para 444) It thought its proposed scheme could be run for 11 percent. (para 445) That is an efficiency gain of over twenty percent for the entire scheme. It used that gain to fund the comprehensive scheme – indeed had it not, the scheme could not have been as efficient.

Of course those in the administration system, including lawyers, who were beneficiaries of the scheme would lose out, but the effect of the switching of transaction costs into transfers was to coopt the public and their representative lobbyists. (Not all lawyers opposed the scheme.)

In the end this substantial efficiency gain made the revolutionary scheme possible. It also explains why it has never been possible to extend the scheme to sickness beneficiaries, despite the evident inequity between the difference of treating sickness victims by flat rate social security benefits and accident victims by earnings related accident compensation. There is simply no twenty percent efficiency gain to fund a comprehensive sickness system.

(For completion it may be mentioned that the scheme as implemented addressed some other problems, most notably that of compensation for medical misadventure where the looming example of the US tort practices – perhaps one could say ‘excesses’ – were avoided by incorporating misadventure into the overall scheme.)

The Future of Accident Compensation

This paper is largely a retrospective account of the early history of the accident compensation scheme until 1967. Much has happened since. Is there anything we can learn from that history which might provide pointers for the future? The simplest message is that subsequent changes have not been as problem orientated as the Royal Commission’s proposal was.

Too often public policy debate, and even public policy development, is driven by solutions rather than problems, an ignoring of the wisdom ‘if it aint broke, dont try to fix it’. (The more cautious version is ‘if it aint very broke, dont try to fix it.’) Advocates are anxious to impose their policy answers to an issue, without any attention to what the problem might be.

There are various covert reasons for solutions-driven policy. Much of recent change seems have been driven by ideological objectives the reformers will not articulate because they knew they would be politically unacceptable, or by a Promethean insistence that the policy should conform to a particular ‘ideal’ model. Sometimes the idealisation is riddled with nostalgia, with little attention to the historical facts, as for calls to return to common law for accident liability. The history of the Doctrine of Common Employment gives little comfort as to the efficacy of such a reversion. Indeed statutory protection was introduced because common law was not able to adapt fast enough. Moreover, as the Woodhouse proposals demonstrate, common law can have very high transaction costs. Even so, common law exists as a backup to statute law, and as illustrated by Ailsa Duffy’s paper, where concerns are not adequately covered by statute law, it comes into its own – albeit clumsily.[15]

Another common reason for hiding the true reasons for advocating a particular solution-driven policy, is that it is intended to redistribute income to the advocate and her or his employers, and away from others. That probably has been a major factor in recent changes. The clue this is happening is when the rent-seekers claim unproven efficiency gains which are likely to be small in actuality, and never mention the redistributive impact which is likely to be large. Very often the advocation of solutions driven policy is bolstered by a list of pseudo-problems which have only a tenuous connection with any outcome the solution could deliver.

This is not to say there is no case for carefully designed reforms based upon systematic analysis of a well defined problem. But typically any successful changes will be small and incremental rather than large and radical. Occasionally there will be reforms which are. The Woodhouse proposal for compensation was one such example. Its success was based upon identifying a substantial efficiency gain and using the gain to coopt a large proportion of the population to the reform. But it was founded on a clear understanding of the policy problem, based on analysis and a sensitivity to history. Instructively, it summarised the problem in a mere 250 words (including those omitted above). The summary gives no indication of what the solution might be, and so does not confuse it with the problem.

If there is but one operational lesson in policy development from the Woodhouse Commission, it is to construct a problem summary. Others may not be able to be as clear and succinct, so let’s given them the inefficiency margin which Woodhouse eliminated in the system of personal injury, and invite policy advocates to provide an account of the problem they are addressing (independent of the solution they seek) in, say, 320 words. Such a requirement would eliminate a lot of inefficient advocacy of solution-driven policy.

Endnotes
1. I am grateful to Adam Clayton and Richard Gaskins for comments which helped improve this paper.
2. B.H. Easton, The Commercialisation of New Zealand (AUP, 1997) p.255-264.
3. K. R. Popper, Objective Knowledge (Clarendon Press, 1972) p.265-6.
4. J. G. Fleming, An Introduction to the Law of Torts (Clarendon Press, 1985) p.2.
5. R. Firth, Economics of the New Zealand Maori (Government Printer, 1967)
6. Fleming op. cit., p.3.
7. 150 Eng. Rep. 1030. 1032-33 (1837)
8. L.M. Friedman & J. Ladinsky, ‘Social Change and the Law of Industrial Accidents’, Columbia Law Review (1967) Vol 67:50, p.54.
9. Farewell v. Boston & Worcester Rail Road , 45 Mass (4 Met.) 49 (1842)
10. W.S Holdsworth, History of English Law (Methuen, 1937) Volume VIII, p.481-2.
11. I. Campbell, Compensation for Personal Injury in New Zealand: its Rise and Fall (AUP, 1996)
12. J. W. McDonald (revising editor C. N. Irvine) McDonald’s Law Relating to Worker’s Compensation in New Zealand (Butterworths, 1968) p.3.
13. The details of these statutory development in I. Campbell op cit. Chapters 1,2.
14. Royal Commission on Workers’ Compensation, Compensation for Personal Injury in New Zealand (Government Printer, 1967) p.19.
15. Ailsa Duffy, The Common Law Response to the Accident Compensation Scheme , paper to “Looking Back at Accident Compensation: Finding Lessons for the Future.” Victoria University of Wellington Law School: 2-3 August: 2002.

NoteAn later report on an aspect of the accident compensation is Submission of Review of Medical Misadventure

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The Debt Burden on Students

Revised version of paper to NZUSA Student Debt Summit, July 23, Auckland.

Keywords Education, Regulation & Taxation

Substantial tax reductions for the rich, if they are not to be fiscally irresponsible, require cuts in government spending and the raising taxation on those who are not rich. Thus the generous lowering of income tax on top incomes of the late 1980s required others to take a larger burden – including directly: social security beneficiaries, wage earners, many public servants and government employed professionals, and tertiary students, and indirectly the social wage and those who benefit from it.

The cuts to tertiary students involved the raising of student fees, the reduction of student support (and also – it should not be forgotten – pressures which are compromising the quality of the tertiary sector, and hence giving students an inferior education). For obvious political reasons these cuts could not be justified in terms of the reality of raising the standard of living of the rich by cutting taxes on them. Instead human capital theory was called upon.

Human capital theory treats expenditure on education as if it is an investment which only enhances the student’s earning power. The commercial logic is that people make private investment decisions about their education, deciding whether to go, and which course to take, on the basis of the financial return the options offer. The best outcome, so the theory argues, is if students make the decision themselves. There should be no subsidies to distort their decisions.

This very limited account of the role of tertiary education, has major problems. The first was captured by James Fitzgerald, the first superintendent of the Province of Canterbury, some one hundred and fifty years ago. In his inaugural address he said:

“There is something to my mind awful in the prospect of the great mass of the community rapidly increasing in wealth and power without that moral refinement which fits them to enjoy the one or that intellectual cultivation which enables them to use the other.”

There is no such role for that ‘merit goods’ function of the university in human capital theory.

A second limitation is that if we really believed human capital theory, then we should apply it to pre-tertiary education. Why dont we? I once asked a Minister of Education this. His unsatisfactory answer was that the earlier education was compulsory (ignoring the upper secondary school is not). But why is it compulsory? And if we make tertiary education ‘compulsory’ and so make it free?

Implicit in the social contract was that a New Zealander has a set of social entitlements, including that of the famous Peter Fraser/Clarence Beeby declaration ‘a free education of the kind for which he or she is best fitted, and to the full extent of her or his power. Those desperate to lower taxes on themselves, if not others, simply revoked that part of social entitlement, even though they had been beneficiaries of it in their youth. (They revoked other parts of the entitlement too). As Isaiah Berlin observed those who advanced the rhetoric of freedom were often quick to limit the freedom of others.

But even if economic growth were the only end in itself – and not a merit good and a fundamental civil entitlement – the theory is still flawed.. Economists have been unable to identify the relation between universities and economic growth with any precision. Perhaps many of the benefits from tertiary training are captured by producers in higher productivity and lower costs, or by consumers in lower prices and new products, rather than by graduates obtaining a higher income as a result of the education and training they have undertaken. Perhaps not, and all the long run benefit goes to the student in their earning higher income. We just do not know.

However insofar there are these former effects, so that the students do not capture all the benefits these ‘externalities’ invalidate the conclusions from the simplest human capital theory. For even if there were no private return (and even if there were no merit goods aspects from education), it would still be in the nation’s interest to proceed with mass tertiary training.

There is still severe complications if the narrowest assumptions of human capital theory apply. Consider what we might call `human cattle theory’. Suppose a student of bovine disposition went to university, obtained a degree, and as a result of that degree enhanced subsequent earning powers in terms of higher milk production. The tax liability of this cow would differ from that of human student. The costs of obtaining the degree would be tax deductible. Since in their student years they would make a loss from their training expenses, and from the feeding, watering, and housing of the animal, there would build up a tax credit over the years during which they obtained a qualification. Immediately out of university the cow would pay no tax on her earnings, until the tax credit was exhausted. This happens for real cattle, but not for human cattle. Surely according to human capital theory, expenses incurred in obtaining the capital increment should be deducted for tax purposes?

There is another difference between real and human cattle. Farmers are able to raise a higher proportion of the value of the beast as a loan from the private financial system, than human students can on their human capital. Why? Bankers can own cattle, but due to anti-slavery laws they cannot own people. This restriction represents an important distortion in the labour market, which severely limits the usefulness of human capital theory.

In summary then, the human cattle theory demonstrates there are serious limitations to the human capital theory even in its narrowest version. Perhaps the application of human capital theory often contains a bit of bull.

In the light of these inadequacies why does public policy place so much reliance on human capital theory? The short answer is that it is being used to disguise the grimy political reality that the tax burden was raised on students to fund tax cuts on the rich. So students lost their social entitlement, and were required to pay a much higher share of their tertiary education and training costs.

Another element that got lost was the merit good element of education. As Fitzgerald indicates, material progress does not need the refinement, the intellectual cultivation, the enlightenment, the ethics that education provides. What it needs is highly trained technicians – lawyers, accountants, engineers and so on. One of the first signals of the impending attack on tertiary education was the 1989 Report on Post-Compulsory Education (the Hawke Report), which said that public policy should make no distinction between education and training. What it meant was that educational goals should be abandoned and the focus of the tertiary system should only be on training.

Even so, there was still a flaw in the narrow approach. Despite the economy needs of narrow technicians, the withdrawal of social entitlement and the raising of cost of attendance would cut off the supply of these workers, leaving the economy with far too many unskilled workers and insufficient skilled workers, not all of whom could be substituted for by immigration. However human capital theory offered a sort of solution. If tertiary training is an investment, then the student could borrow the training costs and recoup them, and the accumulating interest, with the higher incomes they would earn in the future. But since students are not livestock, the capitalist financial system cannot cope with this proposition. To cut a long story short the government ended up advancing the loans to the students instead of leaving it to the private sector.

However, students could not always repay the loan, so the government introduced a variable payment system, which in raises the effective rate of taxation on graduates until they have payed off the loan. So the circle is complete. In order to fund low taxes on themselves, the rich introduced a scheme which put high taxes on recent graduates. This is not to be said too loudly, because all the arguments which the rich use to justify lower taxes on themselves, apply equally – and in some cases even more so – to recent graduates. So even if we want to ignore the merit role of education and the notion of a social entitlement to education, the student loan scheme is inefficient because it raises top tax rates.

It is also inefficient also because it is not understood. Student debt is not a simple liability like a mortgage or overdraft, although its holders to treat it that way. Repayment is contingent on the income stream of the debtor involved, and that income stream is uncertain. The technical term for the loan from the position of the student is a ‘contingent liability’.

There is a good reason why the proponents of the student loan scheme do not use the precise term. For one thing it would display to the world that the scheme is no more than a raising of the income tax levy on some parts of the population in order to lower it on others, particularly those of us who got a free tertiary institution, or who have been able to pay off their contingent liability.

Because we cannot be honest about the nature of the contingent loan, students are mislead. The loan conditions infringe the standard rules of human borrowing as set down by Chicago economist Richard Thaler, particularly his fifth proposition ‘Borrow only on the security of a real asset’. This means is that students are almost certainly under-investing in their education and training (although the subsidies that the government still makes to the tertiary sector probably distorts this story).

The loans end up on the government’s balance sheet. Every liability of a person or institution has to be matched by an asset of some person or institution. Thus if student debt is a contingent liability, it has to be matched by a contingent asset. The holder of the contingent asset is the government.

At the last student debt summit two years ago I reported that the government then had a net worth – called the ‘Crown Balance’ – of $8.2b, made up of $ 60.9b of assets less $52.6b of liabilities. Some $3.4b of those assets are loans to students. That means 41.4 percent of the government’s net worth was invested in those loans.

Today, June 2002, the total student debt is $4.8b, or 33.7 percent of the government’s net worth. The Treasury forecasts for June 2006 student debt is $7.8b, 28.1 percent. That is a 14.8 percent growth a year. The burden on students is projected to grow – doubling in five years to six years.

The reduction in the proportion of the contingent asset of student debt in the government balance sheet is to be welcomed. A contingent asset is a poor quality asset. Student debt is probably the poorest quality large asset in the government balance sheet. The inferior quality arises from the various assumptions which are necessary to value it, including when students will have sufficient income to pay them off when they are not being on a low income, or bankrupt, or disappearing out of the IRD records, or finding a tax haven to shield them from the repayment of the liability.

The Crown’s Balance Sheet allows for this, because total debt owed by students is discounted for such contingencies. It is that discounted amount which appears in the balance sheet. In total the students and ex-students think they owe more than the numbers I have just reported. That is another poor quality signal.

Despite its defects, as long as we confine ourselves to the human capital model the student debt scheme it is about the best we have, as the Todd review concluded, with the merit of keeping taxes low on the rich. To change the scheme significantly, we have to break out of the narrowness of students as livestock model, and look at the broader issues.

The NZUSA strategy is to emphasise the social entitlement element in tertiary education. As one who is a beneficiary of such an entitlement, I am in complete sympathy with the general principle although I have a couple of caveats. The first is that I am not sure that entitlement extends to training as distinct from education. Perhaps students who obtain vocational training which adds to their higher incomes in later life should pay more than those who get an education. My second reservation is that social entitlements involve social obligations, which are perhaps avoided by those graduates who go overseas and never return. Overseas experience for graduates is a vital necessity for the well-being of the nation, but permanent migration gives us little back. I mention these two caveats because, while they are not overwhelming, they may be able to be fine tuned into any new strategy.

The real problem is cost. A full educational entitlement system could cost around a billion dollars a year. Unless it raises taxes or cuts government spending savagely elsewhere, the next government has only an extra two billion dollars a year to spend by 2006, and that has to meet the additional pressures for spending on social security, family policy, health, core education, law and order, industries assistance, culture and recreation, the environment, and so on – not to mention the demand for further tax cuts. We are also going to have to spend more on tertiary education to improve its quality. Given these other pressures, it is extremely unlikely that tertiary students can command half the available extra spending.

During the election campaign those who dont expect to be in government after the election are making a number of generous offers to tertiary students – and to just about every other voting group in the country – which they cannot possibly fund in the current fiscal regime, and probably cant in any practical one. (Note the government operating surplus is necessary for macroeconomic management as is the so-called ‘Cullen’ superannuation fund. I am reminded how in 1975 Muldoon promised an expensive National Superannuation Scheme. When he got power he faced the fiscal reality, and destabilised the economy to fulfill his election promise.) So let me try to suggest a strategy which might have some prospect over the next three years.

First let us get the nation to formally adopt the Fraser/Beeby principle that each of its citizens has an entitlement to a reasonably free and appropriate education. The principle already applies to primary and secondary education. In an affluent and technologically innovative economy it extends to a tertiary education entitlement. Initially it would apply to one free post-secondary year, and increase as increasing affluence and fiscal restraints permitted. It is likely to get support from the public at large, and also from primary and secondary school lobbies because it guarantees free core education for them too. Initially the practical effect of the proposal might be that tertiary fees would be minimal in the student’s first year and be progressively (albeit, perhaps, selectively) reduced for later ones..

The second leg of the strategy is to recognise that the next term government is going to have to be more distributionally innovative, and for NZUSA to seize this opportunity to support vigorously the need for relief to poor students by improved student allowances. This is a quite different issue from the entitlement principle, because that is independent of personal and family income – just as one’s entitlement to health care the law, access to the national parks is so independent. Even the Todd Taskforce saw a case for distributional interventions, given how onerous the student debt scheme is.

The third leg of the strategy is a response to the merit good element of education, with student debt relief in exchange for social contribution. National’s proposed ‘you stay, we pay’ is an example of graduates who work in New Zealand get faster relief than those who work overseas. I have reservations about the precise details of National’s proposal, but the principle is sound. It could be extended to greater relief for those who chose to live and work in the outer regions of New Zealand, which do not have universities, so that benefits of education are more widely spread through the country. (In past we had ‘country service’ for teachers for exactly this purpose. One of its greatest benefits is that it gave a lot of New Zealanders who ended up in senior positions in big cities an early provincial experience which help shape their view of their nation.) There may also be an opportunity for faster debt relief for those who have low paid jobs for voluntary organisations. There are strong social reasons to share the fruits of tertiary education with the regions and the voluntary sector, but there will also be a strong lobby of regional politicians and employers and voluntary association who will be on students side for this sort of debt relief.

The merit good argument also suggests that there should be stronger incentives to students to do non-vocational courses: the arts and humanities, natural and social sciences, creative studies, Maori and ethnic studies and the like. The benefits of such courses to the nation are not directly captured in the vocational output of the student. This suggests that student fees should be lower for them. This could be effected by the government funding these courses at a higher rate, with the higher subsidy being used to reduce student fees. Again there are other lobby groups which would support such a policy.

To conclude. Students rightly see student debt as a burden. I have tried to extend their perception in two respects. First that burden arose as an offset to the tax reductions given to high incomes and, second, there are a number of inefficiencies that arise from the debt system. But this paper has also tried to move the debate from simply seeing these consequences of student debt to explaining how the theory which underpins the debt is too narrow. A broader vision of our nation is one in which New Zealanders have social entitlements to an education, and in which education is distinguished for vocational training.

Notes: The paper The Sustainability of Student Loans which I gave to the Student Debt Summit in 2000 is also on this website, as is a brief account of Richard Thaler’s savings principles, and an earlier Listener column on student loans. Some of the issues in this paper are elaborated in my books Commercialisation of New Zealand and The Whimpering of the State: Policy After MMP.

Marshall and Sutch

Letter in New Zealand International Review, July/August 2002, Vol XXVII, No 4, p.33.

KeywordsPolitical Economy & History

In his review of Keith Eunson’s Mirrors on the Hill, Bruce Brown asks ‘who reads [Jack] Marshall’s autobiography?’, and answers ‘the two volumes are an excellent source of much recent political history (for example on Bill Sutch).’ (NZIR May/June 2002) They may be source of political history but the coverage of Sutch is inaccurate, imbalanced, and unsatisfactory. Many of the errors are addressed by Sutch’s widow, Shirley Smith, in a letter deposited at the Alexander Turnbull Library. My concern here is the balance.

When I looked again at the autobiography when writing on Sutch in my book The Nationbuilders, I decided that Marshall’s material was so problematic that I largely left out the rebutting of it, since that would have distorted the story, leaving that task to an earlier paper Trying to Understand Dr Sutch, which I gave to a Stout Research Centre seminar in 1998. However the book makes a brief reference which is worth setting down here.

Marshall wrote in his second volume ‘In 1934 Sutch was involved in forming the Wellington Fabian Society. It was an incongruous situation in which he was expected to advise his ministers [sic, at the time he was an adviser to Gordon Coates only], how they could revive the capitalist economy when he himself believed that the capitalist system had failed and that socialism was the answer.’ (p.144) No source is given.

I have located two. Twenty years earlier Sutch wrote in The Quest for Security in New Zealand: 1840-1966 that ‘In February 1934 a Wellington Fabian Society was formed with the sole purpose of inviting George Bernard Shaw to give a public address. The moving spirit was R.M. Campbell (the writer assisted). Both of us were on the staff of J.G. Coates, who we told of our actions; and Peter Fraser readily cooperated.’ Campbell, who was a decade older that Sutch and later became Public Service Commissioner, also gives an account in The Auckland Weekly News (29 August 1956) which confirms Sutch. Shaw’s Wellington address was typically Fabian, arguing that a capitalist economy should be incrementally transformed into a socialist one. Indeed, the most severe imbalance in Marshall’s account of Sutch is his crude portrayal of all socialism as a unity, confusing the revolutionaries with the evolutionaries, and its complete lack of awareness that (evolutionary) British socialism comes primarily from Christian dissenters, particularly the Methodist tradition which Sutch grew up in, and which he honoured to the end of his life.

Marshall provides one fresh fact, for most of the material in the autobiography which does not come from readily available published sources seems to be based on gossip. He writes ‘a security check, not long before his retirement in 1964, [when Marshall was Sutch’s minister and presumably saw his security file] did reveal visits to the home of a member of the Communist Party, but no more than that. Some people alleged that Sutch was a communist, but there was no positive proof to support the charge …’(p. 145-6) The failure of the security service to identify any communist links is consistent with their failure to provide evidence to this effect at the trial in 1975. (I add that I am but one of many ordinary New Zealanders who would have to plead guilty to having visited a communist’s home.)

There is of course no question that Sutch was pro-Soviet long after others of his group, including his wife, had abandoned that faith. And the residual sentiment was undoubtedly a major part of the reason why he got involved in that tangle with the Russian embassy in the penultimate year of his life which led to his arrest, trial, and acquittal on a charge of spying. This remains a very unclear episode. But Marshall appears to depend on his recall of news reports and offers no new insights although, surprisingly for a lawyer, he is quick to overrule the judgement of the jury. .

As useful a political history Marshall’s autobiography may be, its greatest disappointment is its account of Keith Holyoake, surely our greatest post-war prime minister. He worked with Holyoake for a quarter of a century but gives him only seven page assessment, whereas he was Sutch’s minister for four years and gives him ten. This surely cannot be Marshall’s judgement of the relative importance of the two men?

From Pavlova Paradise Revisted by Austin Mitchell.

Based on TV program to be shown on TV1: 5, 12, 19 August 2002. Excerpts from book, in which Brian Easton responds to Mitchell interviews. p. 156, 157-8, 160, 163, 164, 165, 167-8.

Keywords: Political Economy & History

Rogernomics is a reference to Reaganomics and Thatchernomics. It’s the ideology of the new right that says monetary control is all you need worry about. Don ‘t worry about the export sector or whatever.

It was a very extreme policy, and probably New Zealand’s gift to the world in the eighties and nineties was to show how disastrous those policies were. One has to say that at one stage people used to come along to New Zealand to admire our policies. When it became increasingly clear they were a disaster they didn ‘t bother: Now they look elsewhere.

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New Zealand has a very thin constitution. We don’t even have a House of Lords. And, of course, Britain has a whole series of informal constitutional arrangements, which hardly exist in New Zealand. Our caucuses were remarkably quiet. We didn’t even have those sorts of protections. So it was for extremists to take over the country. You can think of New Zealand as a fort, which was designed to protect New Zealanders against the rest of the world. When the terrorists actually get inside the fort th could just mow everybody down and that’s what happened. The fort worked on the basis that it was our side that was running it.

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The National Party is, fundamentally, a party of conservatism, but it also got seized by ideologues and, for a while, those ideologues drove the party, particularly in 1990 and 1991/92. You had the National Party doing all the measures that Labour couldn’t quite get its heart round, like totally liberalising the labour market, virtually reducing all protections, driving down work, pay conditions, and pay rates for low-paid workers incidentally with no benefit, of course. Eventually, the National Party began to drift back to its more conservative level but it always had these wild ideologues who would sell off anything.

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Monetarist theory just didn’t include an export sector: The model was of a closed economy which didn’t have an export sector. Ideologues were thinking of America, and America’s such a big economy that, on the whole, it can largely ignore its export sector Whereas it for instance, you look at Britain you know that it’s very important that the export sector is functioning well, otherwise the economy screws up. That’s what happened in New Zealand, too.

That situation, with various modifications, continued right through the 1990s. So look at the New Zealand export record and we have one of the poorest in the O E CD. They were promising us better economic performance but not in exports. We were superb importers, though. Outstanding import performance.

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Telecom was a major mistake over the actual regulatory environment. So we’ve had ten years of litigation in which competing companies have tried to get involved in the Telecom market and have been blocked off because we have such inadequate laws in the industry. At one stage the courts decided that if a competitor against Telecom was successful then they had to pay the profit loss that Telecom would have received from the superior service. That actually went to the British Privy Council in London and the decision was that that was the law. If I out-competed you then I had to compensate you for your loss of profit. It’s Mickey Mouse stuff.

They sold off the electricity system and what we are now doing is trying to untangle the shambles that’s been caused. Even this year we had a lack of capacity to produce electricity, simply because we didn’t have any planning behind it, (and because people were playing market games and wasting water and not having the amount of generation. A couple of years’ ago we actually closed down the central city of Auckland by having no power because the cables overheated. There’d been no planning and no thinking through of those sorts of issues. So this ideology went on right to the end. Some of the National politicians tried to control it but the extremism existed right through to 1999.

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It was a curious view that businessmen could run politics better than politicians. They said politicians couldn’t do business, but business could do politics. The record is that in area after area businessmen had a lot of trouble even running their own businesses. Lots of big New Zealand companies have fallen over. We have a single airline, Air New Zealand. It was sold off at a relatively low price to Brierleys. Then later that was taken over by a Singapore company and they virtually ran it into the ground. Earlier this year the New Zealand government had to re-nationalise it and made a big profit on the re-nationalisation because the company had been so badly run. There’s a joke going round, ‘How does a New Zealand businessman get into small business? He starts with a big business.’

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Since 1985 we have one of the Worst economic records in the OECD, excluding, of course, the Communist countries. On any measure of economic welfare, like jobs or the standard of living, we’ve done very badly. The Australians did much better than us. That was a bit surprising because they actually faced a worse external environment. Their prices for their exports fell more than ours. Nevertheless, Australia’s done roughly as well as the OECD average, and it’s grown a lot better.

Whereas once we used think of ourselves as having roughly the same standard of living as the Australians, we’re now about twenty percent lower. What was interesting was that the Australians actually had the same mad ideologues and they regularly came over to New Zealand and said, ‘Look at all these clever things New Zealand are doing. We should do them.’

Their political processes were such that they couldn’t actually implement extremist policies because there were mechanisms to stop the extremism. It was said at one stage that New Zealand had a cunning plan to catch up with the Australians. We were going to get them to adopt our policies and then really slow them down.

What I’d like to say to the rest of the world is that it’s been a disaster for New Zealand. But you can learn. We’ve run an experiment. We can show you how not to do it. I guess that’s not a very great achievement, but at least it is a contribution.

A Beautiful Theory: But It Is Only a Game

Listener 13 July, 2002.

Keywords History of Ideas, Methodology & Philosophy

The film A Beautiful Mind was another version of Love Story. Instead of the lovers having to overcome health, race, other obligations, or location, this time the obstacle was mental illness. Ultimately John and Alicia Nash triumph, with a Nobel Prize in economics to boot. The true story is far more complicated, and in some key places different. More disappointing, the film made only the feeblest attempt to explain what Nash actually did. Hollywood must have thought the concept too difficult for the average film-goer. Let me accept the challenge.

‘Game theory’, the topic for which Nash was awarded the Nobel, might better be called ‘interactive decision theory’. It is not really about games like netball and rugby, but bridge, chess, Diplomacy, draughts, go, Monopoly and poker (which can all be played against a computer). There are a well defined set of rules. There are two or more players each of whom has to choose a strategy. The outcome may be ‘zero-sum’ (the winners’ gains are offset by the losers’ losses) or ‘non-zero-sum’ (where there is a net gain in total). The players may be allowed to cooperate, or not. They may have complete or incomplete information.

Game theory explores whether there is an optimum strategy, which will generate the best possible outcome for each player. In some games (e.g. noughts-and-crosses) the strategy is known. In others (e.g. chess) the best strategy is not known. Nash’s greatest contribution was to prove that in a very wide range of games (including all those mentioned above) there is an optimum strategy. (Even for chess – it is just that we dont know it.) The outcome of optimum strategies generates a ‘Nash equilibrium’, a term which will give Nash immortality. (His later work involved fundamental mathematics. It seems possible that but for his mental illness he would have won a ‘Field Medal’, the Nobel Prize in mathematics. Noone has won the mathematics Field and the economics Nobel.)

New Zealand economist John McMillan writes in Games, Strategies and Managers (a book I recommend to the general reader) that ‘game theory cannot, by its nature, give all the answers to how any particular strategic situation works.’ Its importance is the conceptual framework it offers.

Initially economics was not greatly interested in game theory when it focussed on zero-sum games, for the discipline is inherently about both sides benefiting. Many people see all or a lot of economic activity as zero sum, as when they think that if someone made a profit it must be at the expense of someone else. Economists think there are often gains to both in a trade.

When game theory was extended to non-zero-sum outcomes, economics hit a different problem, captured in the well known game ‘the prisoners’ dilemma’. It concludes that if two prisoners compete against one another the outcome is worse than if they cooperate. So it challenges the assumption that competition always gives the best results. Again you can see economists wrestling within the underlying concepts of game theory.

Game theory may have also led to a whole new branch of ‘experimental economics’. When the prisoners’ dilemma game was first identified, they played it to see whether people actually followed the logical behaviour. The overall conclusion is ‘sort of; sort of not’. (Among the developments is the ‘Ultimatum Game’ of my column of 23 December, 2000.) A practical application of game theory has been the design of efficient auctions.

Nash’s biographer, Sylvia Nasser, says that game theory was important in the early 1950s to breaking the cold warrior’s obsession with zero-sum nuclear war. It could not tell them what the best strategy was, but non-zero-sum games pointing to the potentialities of cooperation led to the development of limited responses rather than all-out nuclear war.

So it was absolutely right to award its instigators a Nobel Prize in economics. Nash was accompanied by Hungarian John Harsanyi and German Reinhard Selten, who extended Game Theory in different ways to Nash. In some ways the awards were really to Hungarian (and polymath) John von Neumann and Austrian Oscar Morgenstern, whose seminal Theory of Games and Economic Behaviour triggered the development of game theory. The book was published in 1944, but they both died before Nobel economic prizes were instigated. Exactly fifty years later, the Nobel Prize committee awarded the prize to game theorists to recognize the earlier achievement too.

So Nash’s story is empowering to those who have had to struggle with mental illness personally or in the family, and his work has enriched our understanding of how humans can behave. He offers one further lesson. Asked how his paranoia led to a belief in aliens, he said ‘the ideas I had about supernatural beings came to me the same way that my mathematical ideas did.’ But mathematics is about the deep elegant world of logical systems. Aliens are, or are not, about the real world. The criteria for truth in the two are quite different. Mathematics is essential for modelling , but there has also to be a test of reality. Sometimes non-paranoiac economists forget the distinction.

Education Factories: Should Schools Be Treated Like Businesses?

Listener 29 June, 2002

Keywords Education

The chapter on the core education system in my book The Whimpering of the State evaluates the underlying economic model which influenced the education reforms of a decade or so ago. In essence schools were to be treated like businesses. …

… In which case the standard economics argument is that maximum performance would be obtained by putting them into a competitive market environment with principals having the powers of a chief executive with the freedom to manage the inputs of the firm (including the teachers – remember bulk funding?), and the parents having market choice.

This application of the theory of the firm to education involves all sorts of problems. For instance what exactly was the school’s business? Was it a shop selling students aqualifications? Or perhaps like a freezing work it was processing students? But involves a far more complicated transformation of the individual than the slaughter and packaging into standard cuts of meat. I quoted W.B. Yeats’ poem ‘Among Schoolchildren’ in which watching in a classroom he muses ‘O body swayed with music, O brightening glance,/ How can we know the dancer from the dance?’ More prosaically, how can we separate the student being educated from the education process?

When I presented this thesis to teachers, they responded positively because it provided a context in which the reforms they experienced and were experiencing, made some sense. It was almost as if economists had ignored the educationalist’s account of the world and imposed their reality over it. This was evident in the furious responses by educationalist to the 1987 Treasury post-election briefing on education which they argued was ignorant of the educational issues. While many professions were supine to the reforms of the late 1980s and 1990s, the educationalists produced a rich set of critiques. (One curiosity, is that many – but not all – of the most critical scholars later took prestige positions overseas, indicating that they were high quality academics.)

Yet there was a grave weakness to my analysis. Systematic modelling inevitably involves making simplifications. (So does unsystematic theorising, but the assumptions are more obscure, and the streamlining harder to identify.) There is a danger of oversimplifying – rigour to the point of rigor mortis. A model needs to be empirically tested: so does the critique. (Economists have tried to test the theory that schools are businesses with production functions. Unfortunately they rarely allow for differences between students – because the data needed does not exist – so their conclusions are not compelling. Imagine trying to assess the efficiency of freezing works with different throughputs of cattle, deer goats and cows, with a crude output measure such as tonnes of meat.)

So I was delighted to come across When Schools Compete: A Cautionary Tale. The American authors, Edward Fiske (who has been education editor of the New York Times) and Helen Ladd (who is professor of public policy studies sat Duke University), spent five months here in 1998 assiduously examining the outcome of the reforms, including interviewing almost 200 people involved in education and visiting almost 50 schools. Their conclusions are a damning inditement of a market-led education system. Happily there has been some backing down since. (I hasten to add they do not condemn of every change.)

There are also some great stories. The best is about the eight South Auckland schools which were deemed to be under-performing. So the Ministry of Education arranged for their principals to go to a three day retreat under the leadership of a management consultant from a brewery. The consultant had extensively surveyed the schools, and began by telling the principals that they were already capable managers. ‘He would invest in any company [they] were running.’ So the principals spent three days running plotting against the Ministry, which may not have had the same level of competence. It saw the schools were functioning poorly. The theory said that if the management was competent they should function well, so the problem was to improve the management. The fact the principals were proficient suggests that there was something wrong with the theory – with the underlying model.

The book is rich with shrewd and balanced insights into the strengths and weakness of the reforms. Perhaps it says no more than what most teachers and many parents intuit, but it is disappointing that it is not more widely known because it provides evidence and analysis to underpin the intuition. Any teacher who cannot find time to read the book is overworked, and should promptly be given refresher leave to study it.

The book’s final paragraphs have a wider application:

‘The New Zealand experience also suggests the limits of particular ideas and theories … If nothing else the experience with school reform … illustrates there is no panacea in school reform. New Zealand’s experience … demonstrates that reformers in other countries who are tempted to put their faith in simple governance solutions to complex questions of educational quality are likely to find them wanting. It also demonstrates that overreliance on simplistic solutions can cause considerable harm to both individuals and schools …’