Friday, November 30, 2007

Make way for youth

The clean removal of John Howard from the leadership and Parliament, and Peter Costello as a leadership contender, provides the Liberal Party with a fresh slate.

Since the 1980s the Liberal Party has been dominated by the big personalities that were able to impose their will across the party.

The federal parliamentary party has fought on both philosophical and personal differences -- the "wets" and the "dries", Howard versus Peacock and then Howard versus Costello.

In Victoria there has been the ongoing battle between Kennett and Costello.  While recognising both men's enormous contribution to Victoria, Australia and Liberal politics -- they are now men of the past, and so should be their battles.

On the policy front, the party has largely converged on the principles that guide economic policy.  What differences remain between liberal factions are minor.

But on social policy the party is increasingly polarised into two groups -- social conservatives driven by a minority, but vocal, religious infiltration;  and the substantial majority who want a more progressive social liberalism that reflects contemporary Australian society.

In fact, among Liberals under 40 there is a strong convergence of values that supports a classical liberal, or libertarian, approach of free markets and a free, open and pluralist society.  And their values are closely associated with those of their non-party peers.

Among younger Australians, respecting choice is central to their values.  But the Howard government was either unaware of or unable to adjust to the major shifts in social attitudes in the past decade.

The Howard government's philosophical perspective was frozen in 1996, and it paid the price for it.  For example, while census data shows that the number of "working families" is declining, the Howard government took swathes of childless people's tax dollars to prop them up.

Equally, the Howard government foolishly failed to recognise in law the basic dignity of same-sex couples, despite their broad acceptance within Australian society.

The future of the Liberal Party is through inclusion.  Looking to the future, the party needs to develop a contemporary, progressive liberalism that resonates with the electorate.  With the inevitable attrition of MPs after the election, the next generation of Liberals will bring with them their more representative policy positions to support the Liberal brand.

The next generation of Australians coming through are the most truly natural liberal generation in modern Australian history.  Social research emphasises the coming generation's belief in a free market and a free society with individual responsibility central to their way of life.  Equally, their liberalism is organic.

Their openness to market capitalism comes from growing up in a dynamic capitalist society that has provided for the material wealth of them and their peers.

Similarly, their sympathy with social liberalism is a consequence of being raised in a diverse and multicultural society, and having travelled extensively.  They have grown up looking for traits that unite not divide them from the diverse range of people with whom they interact.

Individual responsibility is also central to younger Australians' attitudes.  Research by the Centre for Social Change at Queensland University of Technology argues that younger Australians demonstrate the highest participation rate in civic activism since those born at the start of the last century.  The Liberal Party needs to harness the political opportunity that Australia's next generation provides.

First, the party should never be ashamed of its history.  Every government makes mistakes.  One of the specialities of Labor is to revise history to extol its virtues and demonise Liberal governments.

But the Howard government's legacy has been to bring economic responsibility back into favour.  Without it, Rudd would never be able to deliver the social and environmental programs he now plans to implement.

Second, the Liberal Party should promote generational change within its organisational and parliamentary ranks.  Doing so will allow liberal philosophy to evolve to a more progressive liberalism, which involves dumping social conservatism and becoming more closely aligned with community attitudes.

Third, the party needs to explain its philosophy to the community.  Opposition is about more than just opposing the government of the day.  Oppositions need to go back to basics and explain the philosophy that underpins their party's existence.  Liberalism is about the primacy of individual responsibility and action over the collectivism of government fiat.  Above all it respects choice.  In recent election campaigns the Liberal Party shied away from arguing in favour of smaller government and foolishly fought on Labor's turf.  The Liberal Party can never win an election auction fought on who can best spend recurrent government expenditure.  By explaining the philosophy underpinning the party the opposition can then communicate to the electorate how it has come to its policy positions.

Finally, the party must work to engage younger Australians.  They are the largest generation to enter the workforce since the baby boomers and will be a significant voting demographic for at least the next three generations.  Considering younger Australians' attitudes heavily align with classical liberal thought, the party's job must be to join the dots between their values and how they line up against a revitalised, progressive liberalism.


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Tuesday, November 27, 2007

The Politics and Economics of Climate Change

2007 HV McKay Lecture delivered on
26 November 2007


Thank you for inviting me to deliver the 2007 HV McKay Lecture in Sydney.

Over the past half century we have become used to planetary scares of one kind or another.  But the latest such scare -- global warming -- has engaged the political and opinion-forming classes to a greater extent than anything since, a little over 200 years ago, Malthus warned that, unless radical measures were taken to limit population growth, the world would run up against the limits of subsistence, leading inevitably to war, pestilence and famine.

This is partly perhaps because, at least in the richer countries of the world, we have rightly become more concerned with environmental issues.  But that is no excuse for abandoning reason.  It is time to take a cool look at global warming.

By way of preamble, I readily admit that I am not a scientist.  But nor are those who have to take the key decisions about this scientists, let alone climatologists.

They are responsible politicians who, having listened to the opinions of the scientists, have to reach the best decisions they can in the light of the expert evidence available to them.

More important still, the science is only part of the story.Even if the climate scientists can tell us what is happening and why -- not that they all agree about this, anyway -- they cannot tell us what governments should be doing about it.  For that we also need an understanding of the economics, of what is the most cost-effective way of tackling any problem that may arise.  And we also need an understanding of the politics:  of what measures are politically realistic, a particularly tricky matter given the inescapably global nature of the issue.

It is frequently claimed, by those who wish to stifle discussion, that the science of global warming is "settled".  Even if it were, for the reasons I have already indicated -- political, but above all economic -- that would not be the end of the matter.

But in fact, while some of the science is settled, there is much that is not.  So let's start with the facts.

It is customary to focus on three of them.  The first is that, over the past hundred years, the earth has become slightly warmer.  To be precise, there has been a rise in global mean annual temperature of some 0.7º centigrade.

The second is that, over the past hundred years, the amount of carbon dioxide in the earth's atmosphere has risen sharply, by well over 30 per cent, largely as a result of carbon-based industrialisation -- in particular, electricity generated in coal- and oil-fired power stations and motorized transport.

And the third fact (and this is the settled science) is that carbon dioxide is one of a number of so-called greenhouse gases -- of which far and away the most important is water vapour, including water suspended in clouds -- which in effect trap some of the heat we receive from the sun and thus keep the planet warmer than it would otherwise be.

So is it not clear that the warming we have seen over the past hundred years must be due to the massive rise in man-made carbon dioxide emissions, and that unless we substantially decarbonise the world economy the warming will continue, bringing doom and disaster in its wake?

No:  it is not at all clear.  In the first place, while atmospheric carbon dioxide concentrations have grown steadily over the past hundred years, and indeed continue to grow briskly, the warming has occurred in fits and starts.  To be precise, it has been confined entirely to two periods:  from 1920 to 1940, and from 1975 to 2000.  Between 1940 and 1975 there was a slight cooling;  and so far this century (and contrary to all predictions) there has been no trend one way or the other.

So clearly carbon dioxide is only part of the global temperature story:  it is very far from being the whole story.

And this is borne out by the longer term historical record.  It is well established, for example, that a thousand years ago, well before the onset of industrialisation, there was what has become known as the mediaeval warm period, when temperatures were probably at least as high as, if not higher, than they are today.

Going back even further, during the Roman Empire, agricultural records suggest that it was probably even warmer.

So we are left with a double uncertainty.  First, while we know that, other things being equal, rising atmospheric concentrations of carbon dioxide will warm the planet, we have no true understanding of how much they will do so.  And second, we know that in fact other things are very far from equal.  So even if we did know the answer to the first question, we would still be unable to predict what the world's temperature will be a hundred years from now.

These uncertainties clearly have a profound bearing on the economics of global warming, and thus on the policies it is sensible to pursue.  For while we can do our best to make an estimate of the cost of substantially decarbonising the world economy, we have no idea of what benefit that will bring in terms of a lower mean global temperature than would otherwise be the case.

Not that it is clear, even if we could predict the temperature of the planet a hundred years from now (which we can't), how much economic damage a given rise in temperature would do.

It was to advise governments on these issues that the Intergovernmental Panel on Climate Change (or IPCC) was set up in 1988, under the auspices of the United Nations.  The IPCC concludes, on the basis of to say the least very slender evidence, that "most" -- note, not all -- of the warming that occurred during the last quarter of the 20th century was very likely due to the growth of atmospheric carbon dioxide concentrations.

But even if -- and there is clearly a case for erring on the side of caution -- this is so, and even if, as the IPCC blithely assumes, the natural forces that affect the world's temperature in often unpredictable ways can be safely ignored, the policy conclusions which are widely believed to follow from this are very suspect indeed.

In a nutshell, to get a line on how much global warming there is likely to be over the next hundred years, and what the practical impact of the consequent rise in global temperatures might be, the IPCC adds to the assumed nature of the link between atmospheric concentrations of carbon dioxide and temperature, estimates of how much CO2 emissions are likely in fact to increase over the next hundred years, based on a number of different economic development scenarios;  and then assesses, largely in quantified form, the likely consequences of the resulting rise in world temperature.

All the IPCC's scenarios, incidentally, assume that, over the present century, faster economic growth will mean that living standards in the developing world, in the conventional sense of GDP per head of population, will to a very considerable extent catch up with living standards in the developed world.

In other words, by 2100 poverty really has become history.  If nothing else, this should cheer up those who have been told that disaster stares us in the face if we do not take urgent action to save the planet.

It is only fair to add that what I have just spelled out is what emerges from the IPCC's scenarios before deducting the projected costs to the economy of 21st century global warming.  I will of course come to that;  and it will be seen that it does not fundamentally change the picture.

It is also of course true that the IPCC's projections of 21st century economic growth may prove to have been too optimistic;  but in that case, given the assumed growth-emissions-temperature nexus, there will be less global warming, too.

As it is, the temperature projections it does come up with in its fourth and latest Report range from a rise in the global average temperature by the year 2100 of 1.8ºC for its lowest emissions scenario to one of 4ºC for its highest emissions scenario, with a mean increase of slightly under 3ºC.

At this point it might be a good idea to leave the rarefied world of the IPCC for a moment and take a brief reality check.

Is it really plausible that there is an ideal average world temperature, which by some happy chance has recently been visited on us, from which small departures in either direction would spell disaster?  Moreover, while a sudden change would indeed be disruptive, what is at issue here is the prospect of a very gradual change over a hundred years and more.

In any case, average world temperature is simply a statistical artefact.  The actual experienced temperature varies enormously in different parts of the globe;  and man, whose greatest quality is his adaptability, has successfully colonized most of it.  Two countries at different ends of the earth, both of which are generally considered to be economic success stories, are Finland and Singapore.  The average annual temperature in Helsinki is less than 5ºC.  That in Singapore is in excess of 27ºC -- a difference of more than 22ºC.  If man can successfully cope with that, it is not immediately apparent why he should not be able to adapt to a change of 3ºC, when he is given a hundred years in which to do so.

The IPCC seeks to assess the likely impact of projected global warming over the next hundred years in two ways.  First, it looks separately at five major headings:  water, ecosystems, food, coasts, and health.  Then it adds all these impacts together to provide an overall figure of the cost to the world of the projected warming.  This last is of course intended to be the net cost.

It is clear that while warming brings costs, it also brings benefits.  Given the wide geographical variation in temperatures around the world, it is obviously likely that, while in the warmer regions the costs could be expected to exceed the benefits, in the colder regions the benefits might well exceed the costs.

The IPCC Report claims to take into account both costs and benefits, yet it devotes large amounts of space to the costs and very little to the benefits.  It is difficult not to sense a lack of even-handedness, leading to a bias in the overall assessment.

But let us first take a brief look at the IPCC's five impact headings.

The first is water.  There is indeed a worldwide water problem, but it has nothing whatever to do with global warming.  Indeed, scientists agree that carbon-dioxide induced warming will tend to increase, rather than reduce, rainfall.  The problem is the huge increase in the world's population, which has led to a massive increase in the demand for fresh water, without any corresponding increase in the effective supply.

Thus improved water resource management, and above all the proper pricing of water, are of the first importance.  But what is abundantly clear is that cutting back on carbon dioxide emissions is irrelevant.

As to ecosystems, here again it is well established that those animal species at risk of extinction are threatened far more by other factors, such as deforestation, than they are by warming, which is at most of marginal significance.

The IPCC's third heading, food, is clearly of the first importance to mankind.  But what it has to say here has not been sufficiently reported.  I quote:  "Globally, the potential for food production is projected to increase with increases in local average temperature over a range of 1-3ºC, but above that it is projected to decrease".

It will be recalled that the mean temperature increase suggested by the IPCC's various scenarios for the end of the present century is a little under 3ºC.

Moreover this is an area where the scope for adaptation is particularly pronounced.  It is not simply a matter of farmers being able to make better use of irrigation and fertilizers, and indeed to switch to strains or crops better suited to warmer climes, should the need arise -- something, incidentally, which will happen autonomously, without any need for government intervention.  It is also because we are in the early stages of a revolution in agricultural technology, through the development of bio-engineering and genetic modification.

The IPCC's fourth impact category is coasts, where it is concerned about sea level rise, brought about by a combination of ocean warming expanding the volume of water and some melting of the Greenland and West Antarctic ice sheets, causing coastal flooding in low-lying areas.  Sea levels have, in fact, been rising very gradually for as long as records exist, and there is little sign of any acceleration so far -- indeed, if anything the reverse is the case.

The fifth and last of the IPCC's impact categories is health.  There are, of course, very serious health problems of many kinds throughout much of the developing world, which need to be tackled in their own right -- global warming or no global warming -- much more urgently than they are being at the present time.  There is no medical mystery about how to do so.

But the connection with global warming is, if anything, the reverse of what the IPCC assumes.  The major cause of ill-health, and the deaths it brings, in the developing world is poverty.  Faster economic growth means less poverty but -- according to the manmade CO2 warming theory, incorporated in the IPCC's scenarios -- a warmer world.  Warmer but richer is in fact healthier than colder but poorer.

What, then, of the IPCC's overall figure for the likely net cost of a warmer world, on the assumption that no measures are taken to curb carbon dioxide emissions, and after carefully examining all the likely adverse consequences, and rather less carefully the benefits?  It will be recalled that the Report's best estimates of the likely warming of the planet over the next hundred years range from a rise of 1.8ºC to one of 4ºC, depending on the emissions scenario chosen.

The Report then takes the upper end of the range -- a 4ºC warming -- and claims that, overall, this would mean a loss, by the end of the 21st century, of anything between 1% and 5% of global gross domestic product.  It adds that this is the global average figure, and that developing countries will experience larger percentage losses.

Given that this derives from the top end of the range, and given that the IPCC insists that all its scenarios are of equal validity, it is clear that, on the basis of the IPCC's own methodology, there may be no net cost at all from global warming over the next hundred years:  it may even be beneficial.

But let us err on the side of caution, and take not only the top end of the IPCC's warming range -- a rise of 4ºC over the next hundred years -- but also the top end of its projection of the net damages, a loss of 5% of world GDP.  A loss of 5% of world GDP is undoubtedly a very large loss indeed;  but to put it in perspective we need to do some simple arithmetic.

Heeding the IPCC's very proper warning that the loss will be greater than 5% for the developing countries (and thus less than 5% for the developed world), I shall make the calculations on the assumptions of a 10% loss of GDP in the developing world and a 3% loss in the developed world.

Again, to err on the side of caution, let us look at the gloomiest of the IPCC's economic development scenarios, according to which living standards (measured in the conventional way as gross domestic product per head) would rise, in the absence of global warming, by 1% a year in the developed world, and by 2.3% a year in the developing world.  It can readily be calculated -- using, to repeat, a cost of global warming of 3% of GDP in the developed world and as much as 10% in the developing world -- that the disaster facing the planet is that our great-grandchildren in the developed world would, in a hundred years time, be only 2.6 times as well off as we are today, instead of 2.7 times;  and that their contemporaries in the developing world would be "only" 8.5 times as well off as people in the developing world are today, instead of 9.5 times as well off.

And this, remember, is the IPCC's very worst case -- and one based, moreover, as they all are, on a ludicrously pessimistic assumption of mankind's ability to adapt to gradual warming, should it occur.  Indeed, the single most serious flaw in the IPCC's analysis of the likely impact of global warming is its grudging and inadequate treatment of adaptation, which leads to a systematic exaggeration of the putative cost of global warming -- if, indeed, over the next hundred years there is any net cost at all.

The IPCC prefaces its assessment with the statement that "The magnitude and timing of impacts will vary with the amount and timing of climate change and, in some cases, the capacity to adapt".  But adaptation will always occur.

The capacity to adapt is arguably the most fundamental characteristic of mankind.  We have adapted to different temperatures over the millennia we have been around, and we adapt today to widely different temperatures around the world.  And that adaptive capacity is increasing all the time with the development of technology.

Yet the concept of static "adaptive capacity" is central to the IPCC's analysis.  Thus in its review of the dangers in different parts of the world, it explicitly acknowledges that, in the case of Australia and New Zealand, these will be limited by the fact that "The region has substantial adaptive capacity due to well-developed economies and scientific and technical capabilities".  Presumably the same applies to Europe and North America, although, curiously, the IPCC does not say so.

But it does express concern about the effect of projected warming on the poorer regions of the world, particularly in Africa and parts of Asia, because of their "low adaptive capacity".  This somewhat patronizing judgment seems ill-founded for three reasons.  First, as we have seen, on the IPCC's own economic growth projections, on which its temperature projections rest, the poorer regions are, for the most part, not going to be poor in a hundred years time.  Second, for those parts that do remain poor, overseas aid programmes will clearly be focused on improving their adaptive capacity, should the need arise.  (This is, incidentally, a much more realistic objective for overseas aid than the promotion of economic development.)  And third, there will almost certainly be substantial technological development over the next hundred years, which will significantly enhance adaptive capacity worldwide, in many cases far beyond what it is at the present time.

In short, the IPCC's analysis and conclusions are seriously undermined by the systematic underestimate of the benefits of adaptation, deriving both from its assumption that "adaptive capacity" is severely and permanently constrained by economic underdevelopment in the developing world, and its assumption that, for the world as a whole, it is constrained by the limits of existing technology -- that is, the assumption that there will be no further technological development over the next hundred years.

This last is clearly absurd in the important case of agriculture and food production, and is implausible in general.  As a result, the IPCC's overall cost assessment inevitably suffers from a pronounced upward bias.

It is true that some forms of adaptation, such as the creation or improvement of sea and flood defences, would, if and when they became necessary, require government intervention.  The IPCC, needless to say, adopts its characteristically downbeat approach to this, declaring that "Adaptation for coastal regions will be more challenging in developing countries than developed countries, due to constraints on adaptive capacity".

It must be said that the challenge ought to be a manageable one:  the Dutch, after all, managed it pretty effectively even with the technology of the 16th century, and technology has scarcely stood still over the past halfmillennium.  But this might well be a suitable focus for overseas aid, should the need arise.

In short, even if the conventional scientific wisdom is correct, there remains the fundamental question of what is the most cost-effective way of addressing the likely consequences of global warming.  Is it to adapt to them, as man has adapted throughout the ages and throughout the world to the vagaries of the climate, or is it to attempt to prevent them, even if this means radically transforming the global economy at very considerable cost?

The answer, I believe, is clear.

The alarmists reply that global warming presents some threats to the planet that are so dire that adaptation is not possible.  But there is nothing in the current state of climate science to warrant this.  Let's take a look at the three most frequently mentioned catastrophic consequences.

First, in the light of Katrina, hurricanes.  The facts are that, of the ten most severe Atlantic hurricanes since 1900, five occurred in the first half of the period and five in the second half.  Seven out of the ten occurred before 1975, that is to say, before the period when the bulk of the modest 20th century global warming began.  The worst of all, by far, was the Great Miami Hurricane of 1926.

In the eyes of the insurance industry, there has of course been a significant rise in hurricane damage over the years.  But that is simply because the huge rise in both population and property values in the affected areas has inevitably caused a substantial increase in damage costs for any given tropical storm.

Next, the melting of the polar ice sheets, and its alleged effect on sea levels.  Clearly, the melting of floating polar ice cannot cause any rise in sea levels -- just as the melting of ice cubes in your glass of water cannot cause the water to overflow the glass.

The issue is solely about the land borne ice at the poles.  And the overwhelming mass of this, and thus of most significance for global sea levels in this context, is not over Greenland in the north but over the vast continent of Antarctica in the south.

Here it is perfectly true that the West Antarctic ice sheet, covering the peninsular which points its finger towards the southern tip of South America, is showing evidence of melting and glacier retreat.  But the West Antarctic peninsular accounts for only around 10 per cent of Antarctic land borne ice, and has a different climate from the rest of Antarctica.  In most of the other 90 per cent of the continent, according to the most recent research, the ice sheet appears to be growing.

Finally, in Europe in particular, there is a fear of a reversal of the Gulf Stream and thus -- paradoxically -- the onset of very much colder weather.  Although there is ample evidence of fluctuations in the strength of the Gulf Stream from time to time, research has shown no sign of any secular slowdown over the past decade.  Nor is there any reason to suppose that there will be even if there is further global warming over the coming decades, since the Gulf Stream is largely a surface current and thus a wind-driven phenomenon.

It is clear, therefore, that even after looking carefully at the worst nightmare scenarios the alarmists can conjure up, there is no reason to believe that, even if the IPCC's projections of global warming over the coming century are realized, which is unlikely, there is anything to which mankind cannot adapt.

Moreover, to the extent that there is a problem of global warming, it is manifestly a global problem.  And if the chosen policy for addressing it is to cut back on carbon dioxide emissions, the cutback clearly has to be global, too.

Thus the perspective of the developing world is of the first importance.  And it is in the developing world, particularly China and India, where emissions are growing fastest.  Indeed, China is very soon set to overtake the United States as the single biggest source of emissions, if it has not done so already, chiefly because its rapidly growing economy is so heavily dependent on energy-intensive manufacturing industry.

Both China and India have made their position abundantly clear;  and it has to be said that it is thoroughly understandable, and reflects the perspective of most of the developing world.  Their overriding priority is to continue along the path of rapid economic growth and development.  Only in this way can the widespread poverty which still afflicts their people be relieved.  They observe that the industrialized countries of the western world achieved their prosperity thanks to cheap carbon-based energy, and they believe that it is now their turn to do the same.

They add that if there is now a problem of excessive carbon dioxide concentrations in the earth's atmosphere, it is the responsibility of those who overwhelmingly caused it to remedy it.

At the very most, they are prepared to concede that, if and when their emissions per head of population have risen to the levels of emissions per head in the rich world, there might be the basis for an international agreement which would be fair for all.  But until then, there can be no question of their agreeing to any restrictions on their emissions.

Indeed, following this year's G8 Summit in Germany, the official German news agency reported that "Chinese President Hu Jintao and Indian Prime Minister Manmohan Singh have created a new alliance to spearhead emerging economies" opposition to developed nations seeking to impose limits on their greenhouse gas emissions".

So where does this leave the prospect of an effective global agreement to prevent the further growth of carbon dioxide concentrations in the atmosphere?  Not, it has to be said, in very good shape.

It is perfectly true that spokesmen for both the United States and the major developing countries are from time to time prepared to pay lip service to the idea of a global agreement on limiting emissions, provided the burden of doing so is equitably shared.

But what the United States considers an equitable sharing of the burden is worlds apart from what China and India consider equitable;  and there is no prospect whatever of this chasm -- it is far more than a gap -- being closed.  This, then, is where we are now.  The Kyoto approach is dead and buried.

Admittedly, the European Union is still theoretically committed to going it alone, having agreed in principle to cut its emissions by 20 per cent (below 1990 levels) by 2020.

But the problem with one or more countries going it alone is not simply the heavy cost to those who do so.  It is also the nugatory reduction in overall global emissions that this would lead to.  This is because the only practical way of cutting back on carbon dioxide emissions is to raise the cost of carbon-based energy, whether by taxation or by the rationing system known as emissions trading;  so that energy-saving becomes more attractive and non-carbon-based energy more competitive.  But as energy prices in, for example, Australia rise, with the prospect of further rises to come, energy-intensive industries and processes would progressively decline in Australia and expand in countries like China, where cheap energy remained available.

No doubt Australia could, at some cost, adjust to this.  But it is difficult to see the point of it.  For if carbon dioxide emissions in Australia are reduced, only to see them further increased in, for example, China, there will be little if any net reduction in global emissions at all.

Meanwhile, the most striking feature of the so-called climate change debate is the complete disconnection between the rhetoric and the reality.  Despite the posturing of politicians throughout much of the world, despite the declarations that global warming is the greatest threat acing the planet, despite Kyoto and despite innumerable international gatherings of the great and the good, little in practice has been done and global carbon dioxide emissions continue to rise.

The reason for this, of course, is that fine words are cheap, whereas the 70 per cent reduction in global carbon dioxide emissions which would be required to stabilize carbon dioxide concentrations in the earth's atmosphere would be very costly indeed.

So how much would it cost to reduce carbon dioxide emissions per unit of output to the extent allegedly required?  The only honest answer is that we do not know;  but all the signs are that it would prove very expensive indeed.  One test is to consider how high a carbon tax would need to be in order to generate the necessary change in behaviour, both on the supply side and the demand side.

And it is significant that this is something which those politicians who identify global warming as the greatest threat facing the planet are conspicuously reluctant to discuss, let alone to propose.  The IPCC, in its 2007 Report, suggests (and I quote) that "the costs and benefits of mitigation…are broadly comparable in magnitude" -- although in fact, as we have already seen, it greatly exaggerates the benefits of mitigation by its systematic undervaluation of adaptation.

But even if it were the case that the costs and benefits of mitigation are broadly comparable in magnitude, the fundamental question, when comparing the costs and the benefits -- even if we accept the conventional wisdom so far as the science is concerned, and even if we assume that a global agreement is attainable, however unlikely that may seem -- is this.

How great a sacrifice is it either reasonable or realistic to ask the present generation, particularly the present generation in the developing world, suffering as it still does from extreme poverty, malnutrition, disease and premature death, to make in the hope of benefiting substantially better-off generations a hundred or two hundred years hence?

The answer is clear:  not a lot.

It is not that we don't care about future generations.  It is that we do care about the present generation.

Nor does invocation of the so-called precautionary principle overturn this conclusion.  The fact that climate science is so uncertain that we cannot be absolutely sure that there is not a catastrophe awaiting the people of the world a hundred or two hundred years hence cannot rationally be used as the basis for horrendously costly policy decisions now.

In a world of inevitably finite resources, we cannot possibly spend large sums on guarding against any and every possible eventuality in the future.  Reason suggests that we concentrate on present ills, such as poverty and disease, and on future dangers, such as nuclear conflict and terrorism, where the probability appears significant -- usually because the signs of their emergence are already incontrovertible.

The fact that a theoretical future danger might be devastating is not enough to justify substantial expenditure of resources here and now, particularly since there are many other such dangers wholly unconnected with global warming.

Does all this mean that we should do nothing about global warming?  Not quite, although doing nothing is better than doing something stupid.  But there are, in fact, some sensible things that can be done.  It clearly makes sense to press ahead with research and development in technologies that might assist the process of adaptation should that be required, as well as having practical utility even in the absence of warming.

Another form of R & D which is rightly taking place at the present time, although so far only in the United States, involves what has become known as geoengineering;  that is, the technology of cooling the planet, in relatively short order, should the need become pressing.  The front runner here is the idea of blasting sulphur aerosols into the stratosphere, so as to impede the sun's rays.

This is not as far-fetched as it seems.  It is what happens naturally, when large volcanoes erupt.  The most recent such occasion was the eruption of Mount Pinatubo, in the Philippines, in 1991, which led to a two-year cooling of the earth's temperature, with no adverse side-effects.

More importantly, there is of course the need to do whatever is needed to adapt to a warmer planet, should the late 20th century warming, which has for the time being paused, soon resume, as the majority of climate scientists are currently predicting.  For the most part this can and will happen spontaneously and autonomously, just as mankind has always adapted to the environment around him, wherever he lives, without any need for government intervention.

But there are some exceptional areas -- what the economists call the supply of "public goods" -- where governments do need to stand ready to act.  The provision of adequate sea and flood defences is the most obvious example.  Moreover, as we have seen, even though the IPCC's projected warming over the next hundred years, if it occurs, may well not be harmful overall, there would be losers in the warmer regions of the developing world.

Should this seem likely to occur, I believe we have a clear moral obligation to help them.  It is true that the record of overseas aid in promoting economic development is very disappointing.  But that is no argument against assistance in, for example, the building of effective sea defences.

Of course it would cost money.  But quite apart from our moral obligation, it is only a minuscule fraction of what it would cost to attempt, by substantially cutting back on carbon dioxide emissions, to control the global temperature.  What is important is that the practical measures I have outlined in the last few pages represent the sum total of what we should be doing.

It has to be said that this is not the easiest of messages to get across -- not least because the issues surrounding global warming are so often discussed in terms of belief rather than reason.  Indeed, the more one examines the current global warming orthodoxy, the more it resembles a Da Vinci Code of environmentalism.

It is a great story, and a phenomenal best seller.

It contains a grain of truth -- and a mountain of nonsense.  And that nonsense could be very damaging indeed.  We appear to have entered a new age of unreason, which threatens to be as economically harmful as it is profoundly disquieting.

It is from this, above all, that we really do need to save the planet.

Kyoto comes with problems

Having placed Kyoto ratification as the No. 1 priority, former diplomat Kevin Rudd wakes up to reality.

Rudd thinks ratifying Kyoto gives us some advantage in that our bureaucrats can sit at every negotiating table.  But the advantage is only consummated if, as a result, we are able to gain concessions.  This is hardly in spirit with the post Kyoto mind-set of selfless measures designed to promote some greater good.

Moreover, in ratifying Kyoto, Rudd is solemnly pledging to achieve a level of emission reduction that cannot be met except by placing the economy into a sharp recession.

This is notwithstanding that Australia received a uniquely generous Kyoto target (108% of 1990 emissions) and has only been able to avoid something well in excess of 120% of the 1990 level by redefining the emission base and abandoning further agricultural expansion.

If Australia ratifies an agreement in 2008, knowing that its 2012 target cannot be achieved, this will surely be recognised as a cynical gesture and will not generate diplomatic good will.

Much of the debate on how to bring about reductions in greenhouse gas emissions has focused on "economic instruments".  These involve either placing a tax on emissions or setting a ceiling on them and allowing companies with rights to emit to trade those rights.

Both approaches set compromises between costs that are imposed on the economy and the reductions in emission levels.

Some activists promoting emission reduction programs would prefer to avoid using taxes or tradeable rights.  In some cases this is because of a deep distrust of economics and a conviction that forcing people to do things they might otherwise avoid would actually leave them better off.  This is not ostensibly the view of those in the political mainstream.

Often a consideration in the introduction of such selective instruments is the advantage they provide in terms of political support.  The benefits are concentrated on a few parties and the costs, though greater, are so dispersed that hardly anyone notices them.

Regulatory interventions for greenhouse reasons are now legion.  There are hundreds of policies and subsidies designed to promote wind farms, biofuels and a host of other matters.

Greenhouse policy is spawning an array of interventions similar to the old industry assistance policies that gradually strangled the economy in regulatory distortions.

Australia's economic health owes a great deal to these having been largely eliminated by the Hawke, Keating and Howard governments.


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Monday, November 26, 2007

Farewell, John.  We will never forget you

It's an awful way to go.  Eighteen months ago John Howard could have handed over to Peter Costello as a winner.  Today he's a loser.  Inevitably, losing this election will influence the way we think about the former prime minister in the years to come.

But what occurred on one Saturday in November 2007 should not provide the entire yardstick with which to measure 11 and a half years.

Economic management will be Howard's main claim to fame.  The prosperity the country is experiencing is taken for granted by voters -- and that is one of the reasons the Government lost.

There's a feeling that low inflation and high growth were just luck.  We are now going to find out whether it was all luck, as Labor will have its chance to prove that anyone can run the economy.  Our low unemployment is the result of WorkChoices.  If Labor repeals it, it and the union movement will quickly find out what the consequences will be.

Other than the economy, there are three areas of Howard's legacy that stand out.  And they are notable not only because they are positive contributions, but also because they are the areas in which Howard's enemies thought he would fail.


IMMIGRATION

In the 1980s, Howard's views on Asian immigration were among the factors that cost him the Liberal leadership.  No one would have predicted that 20 years later he would have presided over the largest immigration program in Australia's history.  It is undeniable that in Australia there is less public argument than in any comparable country.

This is not to say that there are no aspects of the program that are controversial.  But we are not as xenophobic as the Europeans, for example.  For this, John Howard can take much of the credit.

History has vindicated the way John Howard treated Pauline Hanson.  It would have been easy for him to have condemned Hanson, everyone who voted for One Nation, and everyone who had the slightest sympathy for anything she said.  When Howard did not follow this path it allowed all his enemies to claim that he refused.

To repudiate Hanson because he secretly agreed with her.  His reputation suffered, and he will probably always be tarnished by the One Nation episode.

What Howard understood, in a way that his critics did not, was that people's support for One Nation was not a product of their racism but an outcome of their perceived powerlessness in the face of massive economic and social change.

Had Howard done what the media and what many in his own party urged, which was to launch an all-out attack on Hanson and her followers -- he would have stoked even more anger and resentment.

Howard's strategy eliminated One Nation as a political force, and Hanson was reduced to Dancing with the Stars.  The long-term outcome helped enshrine acceptance for Australia's large and nondiscriminatory immigration policy.


ASIA

Before Howard was elected in 1996, Labor claimed that no one in Asia would take him seriously.  Paul Keating boasted that only he could maintain Australia's special relationship with Indonesia, and only he understood China and Japan.

The past 11 years have seen that theory turned on its head.  Our relations with the region are close and strong.  The secret of Howard's success is that he has never been hung up about whether Australia is an "Asian" country, or a country "in Asia".  We don't have to choose to be one or the other, and it's not an issue that should worry us or our neighbours.

Howard's practical approach is appreciated and understood.  He used his practical political skills to manage our relations with Indonesia while we pushed for independence for East Timor.

Few Australians understand how bad the Asian financial crisis of the 1990s was, and how much Australia is respected for its role in assisting the economic recovery of the region.  Our $1 billion aid to Indonesia after the tsunami won widespread recognition for its generosity and for the speed with which it was given.


RECONCILIATION

John Howard's refusal to say sorry for the stolen generation has bedeviled his handling of indigenous affairs policy for a decade.  His emphasis on "practical reconciliation" was unpopular, but it changed the terms of the debate.  Health, education and employment are now at the centre of the discussion.  Because of Howard the public argument shifted away from just being about whether to say sorry to the question of how to improve the living standards of our fellow citizens.

Even those who disagree with the policy cannot retreat from the point that the Government's Northern Territory intervention has put the issue of indigenous disadvantage on the front page of the newspapers.


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No street cred for council party poopers

When the State Government offered councils a $6000 grant to develop street party kits last year, it was no surprise that they jumped at the opportunity.  Not only is writing complicated protocol documents a major highlight of working for local government, but the Byzantine regulations that the kits were to help navigate were imposed by the councils themselves.

One part of government bribing another part of government to do what they should be doing anyway has become a staple of Australian politics.  Why should councils miss out on all the fun?

The resulting street party kits are a grand monument to the bureaucracy and red tape that is impeding social and community life in Australia.  These elaborate bundles of forms, rules and recommendations demonstrate clearly how the steady accumulation of seemingly trivial regulations can quickly become a restraint on community activity.  The regulations aren't those that apply to major festivals on the scale of last weekend's Johnston Street Fiesta -- they apply to small neighbourhood barbecues.

Certainly, many of the issues covered within the kits are, on the face of it, sensible.  Washing hands before handling food probably isn't a bad idea -- it would be poor form to poison your neighbours while you were trying to get to know them.

But, as the City of Whitehorse demands, having to provide party volunteers with comprehensive food handling information in the form of written instructions is taking this a bit too far.  Nobody wants a reputation in the street as the guy who loves to produce paperwork.

And don't bother trying to sell any food or drink.  Children's lemonade stands are only possible if those children are able to fill out Community Amenity Local Law No. 1, Schedule 3 (Parts A and B) and Schedule 7.

The City of Stonnington's 25-page safety plan appears to require the party organiser to assume responsibility for the safety of all guests -- planning evacuation and ambulance routes, assembly areas and marshalling points, memorising emergency announcements, and strategically placing fire-fighting equipment around the party location.

Some rules are completely ridiculous.  Stonnington requires party organisers to keep an incident kit close by at all times.  This should contain a fluoro jacket, gaffer tape, torch, area map and sunscreen.  They also require party organisers to nominate a communications liaison to negotiate potential clashes with local event venues, and to retain an electrician on call, just in case.

Street gatherings are not known for being rowdy.  Nevertheless, the Moreland City Council insists that sound levels do not exceed 65 decibels.  This exhilarating volume is just louder than a humming refrigerator and a little below a hair dryer.  It is also above a quiet conversation.  As a result, laughter, which surely ranks high on the list of attributes of a good party, is essentially prohibited within the People's Republic of Moreland.

Presumably, the 65-decibel limit is also why many street party kits, when recommending that CDs are played at a street party, specifically nominate acoustic music.  If you anticipate your street party may exceed the 65-decibel limit, you may be required to hire an independent acoustic engineer for the duration of the party to monitor your guests' volume.

Councils and the Victorian Government recommend that a street party be held on the street itself.  To do so, six weeks before the party is to occur, an application for road closure must be submitted to the local government.  Forms demonstrating that the road closure has the support of more than 75% of the street's residents must be submitted.  A traffic management plan to be jointly prepared with a council traffic engineer must also be submitted, along with all the necessary fees and charges required to navigate the bureaucracy.  This kind of ridiculous red tape is a major roadblock to community life.

The State Government-funded street party kits also raise another question -- whose job is it to actually sit down and write them?  The kits contain pages and pages of tips on how to have a good party.  For instance, Whitehorse recommends that guests introduce themselves and recall the funniest thing they ever saw on the street.  Developing topics for small talk is hardly a core role of government, and yet state taxes are being funnelled to council bureaucrats to do just that.

And the condescending advice that neighbours should share power tools and wave to each other when they pass on the street should make everybody wonder how stupid councils think their residents actually are.

Local governments enjoy dramatically less media scrutiny and voter interest than their state and federal counterparts.  As a consequence, they are free to impose far more absurd rules than other levels of government.  Local governments are adamant that they are trying to encourage street parties, but if they keep putting up these obstacles, they may not get invited to them.


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Saturday, November 24, 2007

What Price Spending?  The lost opportunity of the 2007 federal election

Occasional Paper


INTRODUCTION

What if an election was held and all that was offered was tax cuts?  During this election campaign both parties have promised to increase government spending.  Meanwhile, as all of these promises to spend more have been gradually accumulating, the various state, territory and federal governments have actually spent more than $1 billion on each day of the campaign.  No matter who wins Saturday's election, this $1 billion-plus per day habit is set to continue into the foreseeable future.

In this brief we evaluate how deep the tax cuts would have been had the parties chosen to cut more and spend less.  The Federal Government has been running a small surplus of about one percent of GDP over the past few years.  This is now a bipartisan policy, and provides the illusion that each party is being fiscally responsible as possible.  To be sure, having a surplus is better than having a deficit;  yet much more could be done, particularly on tax cuts.

This election campaign started out promisingly, with both major parties announcing tax cuts during the first week.  Each party also announced aspirational targets for further tax cuts.  This was a welcome change to the standard pattern of Australian election campaigns, which usually only involve new spending commitments.  It is not clear that all of these tax cuts will actually be delivered, but an important precedent has now been established in Australian politics:  political parties can aspire to cut taxes as an integral part of their campaign strategies.

This is progress.  Chart 1 below shows quite clearly that the overall (federal, state, and local government) Australian tax burden has increased dramatically since 1980, and especially since 1992.

Chart 1:  The Australian Tax Burden
Total Government Revenue as a % of GDPSource:  OECD Revenue Statistics


WHAT IS ON THE TABLE?

It is not easy to determine the actual dollar amounts of election campaign spending promises.  Political parties have an incentive to fudge the numbers either up or down, depending on who is listening.  Politicians want to look like big spenders when they visit a marginal seat, but on national television they want to appear as spendthrifts.

The standard tactics have been evident throughout this campaign.  Money that has been budgeted to be spent -- but not yet allocated -- has been re-announced.  Money that has been committed to be spent before the election campaign is often repackaged and announced during the campaign.  Money may be spent over 10 years, or over one year.  The spending policy may only commence in four years time, and so on.  None of the spending figures for future years are ever discounted and converted back into present value amounts.  For many government programs the amounts of money announced are often inadequate to fund the stated goals of the project, and so can only be regarded as a very rough estimate of the spending that will actually occur.  In other words, both the magnitude and timing of spending are not always transparent.

Irrespective of these difficulties, we wish to make two important distinctions.  First, tax cuts are not equivalent to spending.  Spending occurs when the government raises revenue -- usually by taxation -- and then spends the money.  Spending in this context involves the government purchasing an asset, paying wages and salaries to its employees, or giving the money to recipients of benefits.  Tax cuts, on the other hand, involve the government never raising the money in the first place.

To argue that a tax cut is the same as spending we should consider the following simple example:  The school-yard bully takes your lunch money every day and buys himself a pie at the school tuck-shop.  One day, the school-yard bully announces that he will not steal your money anymore.  You buy a pie for yourself at the tuckshop.  To be sure you now have pie you never before had, but it is not the case that the school-yard bully bought you a pie.

Second, tax deductions, rebates, and other so-called "tax expenditures" are not classed as spending either.  In the Federal Budget papers they appear as reductions in revenue, not as increases in spending.  Tax expenditure can be thought of as being a targeted tax cut.  If you undertake activity X, the government allows you to deduct part of the expenditure from your tax bill.  To take our school-yard bully example, imagine the bully takes your lunch money, buys himself a pie and then lets you have a bite of the pie if you let him copy your homework.

To be fair, the school-yard bully example is not entirely appropriate to explain government behaviour.  It is true that government does have a monopoly in violence, but the government, unlike the school-yard bully, adds value to the economy by maintaining the rule of law and protecting property rights.  Nonetheless, the example does capture the flavour of the differences between spending and tax cuts, and spending and tax expenditures.

These differences are important when analysing what the parties have put on the table.  On the revenue side, the Coalition has announced $34 billion in tax cuts over four years (with more to come) and the Labor Party has promised $31 billion in tax cuts over four years (also with more to come), with Labor's education tax rebate making up most of the difference.  After that, there is substantial disagreement on the figures.

To gauge the numbers, we examined The Age/SMH election website, The Australian election website, the Sunday Telegraph Spendometer (devised by one of the authors of this report) and the websites of the two major parties.  The numbers are all very different (as shown in Table 1).

Table 1:  Dollar Value of Election Campaign
Commitments -- as at 19 November 2007

Coalition SpendALP Spend
The Age/SMH "Porkometer"*$64.605 bn$53.233 bn
The Australian*$65 bn$54.7 bn
Sunday Telegraph "Spendometer"$6.22 bn$7.9 bn
Coalition's own calculations$11.650 bn$12.3794 bn

*includes announced tax cuts


Why is there such a large discrepancy in these figures?  The first point to note is that The Age/SMH and The Australian numbers are large and very close to one another because their methodology is similar.  The Sunday Telegraph and Coalition numbers are much smaller because they do not include the tax cuts or double counting of announcements and the like.  In other words, the larger figures take all announcements at face value, even if they are re-announcements of existing money or repackaged money.  Everything gets lumped together and added to tax cuts to give an over-inflated impression of what both parties are actually planning to spend.

The second point to note is that the Sunday Telegraph and the Coalition's figures show the Government as having promised to spend less than the ALP -- this is in contrast to the two major newspapers and the general public perception.  We were unable to get data from the ALP itself on its calculations of its own spending or Coalition spending promises.

In any case, this brings us to our third point:  none of these sums of money are very large compared to existing government spending.  The discrepancies between the methodologies (and between parties) look big, but in reality they are not.  Both parties agree that the large government spending programs -- social security and welfare ($86 billion in 2005-06), health ($37 billion), defence ($15 billion) and education ($15 billion) -- will continue to grow over the next four years.

Despite the media frenzy that accompanies campaign spending announcements, additional spending and tax cuts promised during election campaigns are simply not that economically important, relative to the massive spending programs that will not be touched at all during this campaign and which will continue to grow no matter who is in power.

To place these numbers into context, we examined how much revenue the Federal Government already intends to raise and how much it already intends to spend over the next few years.  In 2007/8 alone, the Federal Government plans to spend $235 billion.  Over the next four years 2007/8-2010/11 the Federal Government already plans to spend over $1 trillion.  The Australian has estimated the Coalition will "spend" an additional $65 billion over that same four year period.  In other words, even the most lavishly extravagant, double-counted estimate of the election promises will add only 6.5 percent additional spending over the next four years.  That is a miniscule amount compared to the overall size of the Federal Government.  Any notion that the differences in campaign spending promises (however they are measured) will have significant implications for inflation or interest rates is patently absurd.

Election spending promises are far less important than the amounts of money that will actually be spent in total during the next government's term of office.  The political significance of campaign spending announcements exceeds their economic significance -- and both parties (and the media, we suspect) would like to keep it that way.


WHAT TAX CUTS COULD WE HAVE RECEIVED?

There are several ways one could estimate the tax-cut equivalent of additional campaign spending.  We favour a simple, direct approach -- we took the figures that the Federal Government released comparing the Coalition tax cuts and the ALP tax cuts.  These calculations were undertaken by Treasury and we have no reason to doubt their accuracy.  We then simply grossed the data up by the relative value of the spending.  So instead of delivering some tax cuts and some spending over the next few years, we have calculated what would have happened if all the promises had consisted of tax cuts.

Chart 2:  What price spending (Coalition)?

Chart 3:  What price spending (ALP)?

The charts above show the result of this exercise.  Depending on which of the estimates are believed, the additional tax cuts that could have been offered (but were not) are either quite large or quite modest.  Both the estimates by the Sunday Telegraph and the Coalition are low compared to The Australian and The Age/SMH estimates and are low compared to the proposed tax cuts.  We prefer these former estimates to The Australian and The Age/SMH estimates.

According to the Coalition's own calculations of the size of its and Labor's tax cut and spending commitments, the average taxpayer earning approximately $60,000 per annum would receive a benefit after four years of $65 per week under the Coalition's plans and $52 per week under the ALP's plans -- if each party's tax policy was implemented and if the amount each party promised in new spending was instead devoted to tax cuts.  If the Sunday Telegraph's calculations were used these figures would be $58 per week under the Coalition's plans and $47 per week under the ALP's plan.  Using the estimates of The Age/SMH and The Australian, after four years the average taxpayer would be $94 per week better off under the Coalition, and $66 per week better off under Labor.

It can be said, therefore, that regardless of who's figures are believed the average taxpayer would be better off after four years by at least $58 per week under the Coalition and $47 per week under Labor, if tax cuts were delivered instead of spending increases.


CONCLUSION

This election we have seen both parties announcing tax cuts early in the campaign and then announcing increased spending.  Relative to the amount that government already spends, the tax cuts were quite small and the increased spending smaller still.  We have calculated the opportunity cost of the increased spending in terms of foregone tax cuts.

Table 2:  Australian Government general government sector revenue,
expenses, net capital investment, fiscal balance and net worth(a)

RevenueExpensesNet capital investmentFiscal balanceNet worth (b)
$mPer cent
of GDP
$mPer cent
of GDP
$mPer cent
of GDP
$mPer cent
of GDP
$mPer cent
of GDP
1996-97141.68828.0145,80926.7900.0-4,211-0.8-74,354-13.6
1997-98146.82025.4148,64625.71470.0-1973-0.3-68,544-11.9
1998-99151.89725.0146,62024.11,4330.238440.6-76,150-12.5
1999-00167.15825.9156,49224.3-1,225-0.211,8921.8-40,552-6.3
2000-01162.07423.5157,66722.9-1,168-0.25,5750.8-43,299-6.3
2001-02162.95622.1166,75822.7-369-0.1-3,433-0.5-48,429-6.6
2002-03175.51322.5170,99921.9-2190.04,7340.6-53,251-6.8
2003-04187.92422.4182,37121.77240.14,8300.6-39,595-4.7
2004-05206.60523.0195,68021.81470.010,7781.2-30,279-3.4
2005-06221.91823.0206,09621.31,0520.114,7701.5-22,835-2.4
2006-07(e)235.53922.8221,62521.52,0250.211,8881.2-10,852-1.1
2007-08(e)246.76122.5235,59021.51,1710.19,9990.9-587-0.1
2008-09(p)260.72622.8247,48921.61,3770.111,8601.014,0641.2
2009-10(p)274.61423.1259,65221.88610.114,1011.229,1222.4
2010-11(p)287.31222.9272,66921.89390.113,7041.144,1373.5

(a) The fiscal balance is equal to revenue less expenses less net capital investment.  Net worth is calculated as assets less liabilities.

(b) There is a break in the net worth series between 1998-99 and 1999-00.  Data up to 1998-99 are sourced from the Australian Government's Consolidated Financial Statements based on Australian accounting standards.  Data beginning in 1999-00 are based on the GFS framework.  For the general government sector, the major change across the break in the series is an improvement in net worth.  This is primarily due to the move from valuing investments in public corporations at historic cost to current market value (which is caluclated using the share price for listed corporations).  This is partly offset by defence weapons platforms no longer being recorded as assets and valuing debt at current market value.

(e) Estimates.

(p) Projections.

Source:  Budget papers

Cuts small, spending smaller still

What if an election was held and all that was offered was tax cuts?  During this election campaign both parties have promised to increase government spending.  Meanwhile, as all of these promises to spend more have been gradually accumulating, the various state, territory and federal governments have actually spent more than $1 billion on each day of the campaign.  No matter who wins Saturday's election, this $1 billion-plus per day habit is set to continue into the foreseeable future.

It is not easy to determine the actual dollar amounts of election campaign spending promises.  Political parties have an incentive to fudge the numbers either up or down, depending on who is listening.  Politicians want to look like big spenders when they visit a marginal seat, but on national television they want to appear as spend-thrifts.

But tax cuts are not equivalent to spending.  Spending occurs when the Government raises revenue usually by taxation and then spends the money.  Spending in this context involves the Government purchasing an asset, paying wages and salaries to its employees, or giving the money to recipients of benefits.  Tax cuts, on the other hand, involve the Government never raising the money in the first place.

To argue that a tax cut is the same as spending we should consider the following simple example:  The schoolyard bully takes your lunch money every day and buys himself a pie at the school tuckshop.  One day, the schoolyard bully announces that he will not steal your money any more.  You buy a pie for yourself at the tuckshop.  To be sure you now have pie you never before had but it is not the case that the schoolyard bully bought you a pie.

Tax deductions, rebates, and other so-called tax expenditures are not classed as spending either.  In the federal budget papers they appear as reductions in revenue, not as increases in spending.  Tax expenditure can be thought of as being a targeted tax cut.  If you undertake activity X, the Government allows you to deduct part of the expenditure from your tax bill.  To take our schoolyard bully example, imagine the bully takes your lunch money, buys himself a pie and then lets you have a bite of the pie if you let him copy your homework.

Despite the media frenzy that accompanies campaign spending announcements, additional spending and tax cuts promised during election campaigns are simply not that economically important, relative to the massive spending programs that will not be touched at all during this campaign and which will continue to grow no matter who is in power.

Election spending promises are far less important than the amounts of money that will actually be spent in total during the next government's term of office.  The political significance of campaign spending announcements exceeds their economic significance and both parties (and the media, we suspect) would like to keep it that way.

This election we have seen both parties announcing tax cuts early in the campaign and then announcing increased spending.  Relative to the amount that government already spends, the tax cuts were quite small and the increased spending smaller still.


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Friday, November 23, 2007

Vote for rain -- no matter who wins

In the lead-up to the last federal election there was much angst among the irrigation community in the Murray-Darling Basin.  It was feared that if Labor won, a Latham government would take up to 1,500 gigalitres for environmental flows.

Labor lost the election.  But interestingly, in the interim, the Howard government has promised to take about double this amount of water -- about 3,000 gigalitres -- as part of the $10 billion National Plan for Water Security.

Irrigators aren't up in arms.  The big difference is that the Prime Minister, John Howard, has assured farmers that there will be no compulsory acquisition of environment flow water;  that water will be purchased at market price.

At the moment many irrigators with a water allocation appear to be sitting on a small fortune.  Indeed with the drought, new managed investment schemes, and the government promising to buy water for the environment, the price of water has skyrocketed.  But is the situation sustainable?

After the election, if Labor wins, a Rudd government could decide to compulsory acquire water for the environment at a set price.

Whoever wins government I hope that there is an audit of proposed environmental flow allocations.  Just a few years ago the House of Representatives Standing Committee on Agriculture, Fisheries and Forestry found no scientific basis for the then proposed 500 gigalitres.

Yet incredibly the government went on to propose more than 3,000 gigalitres for the environment which would put a huge dint in the productive capacity of the Murray-Darling Basin.

There needs to be a balance and there needs to be some buyback.  But at the moment, in the middle of dire drought, the Howard government has committed itself to buying back a ridiculously large amount -- perhaps even pricing itself out of the market.

Last week NSW Minister for Climate Change, Environment and Water, Phil Koperberg, announced that a pulse of water would be released into the Wakool River -- an anabranch of the Murray -- to provide stock and domestic water and environmental benefits.

The same day Mr Koperberg made the announcement I walked part of this system with local landholder John Lolicato.

In many places the river was bone dry.  The odd billabong contained Murray cod which will hopefully benefit from the proposed pulse of water.

But longer-term it must rain if this environment is to be save.  Indeed, whichever party wins office this Saturday only with rain can the environment and the productive capacity of the Murray Darling Basin be assured.


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Thursday, November 22, 2007

The man who has shaped the future

John Howard may yet have the last laugh on Saturday night.  But not in the sense that he'll win the election -- although that's not beyond the realms of possibility.

Rather, the Prime Minister's triumph rests with the truth that the only way the ALP can beat him is by running a candidate on a platform that is practically identical to his own.  In terms of policy inclination as well as personal style, there's a bigger difference between Peter Costello and John Howard than there is between John Howard and Kevin Rudd.  Saturday night might not so much be the ending of an era but its continuation under a new leader.

Labor might ponder what therefore will be the point of its victory.  Members of the ALP expecting that their party will satisfy the commitment to be the party of the "left" won't want to consider too closely what it means when Labor's tax policy is basically the same as that of the Liberals.  The Greens can talk all they want about being the true party of the "left", but this rhetoric is hollow while their preferences go towards electing ALP candidates.

The dilemma for Labor is that because it has presented itself as conservative and safe, as soon as it does something that is neither of these things it will alienate the voters who delivered it government.  Peter Garrett's comment that the ALP will change all its policies once it's in power wasn't an expression of his humour -- it was an expression of his hope.  What he forgets is that Labor will have been elected to keep things as they are.  Change is the very last thing being demanded by voters in marginal seats.

The Liberals might soon be starting some soul-searching of their own.  As they begin arguing over John Howard's legacy, they'll begin from a position that sees Labor more than happy to endorse the scale of the Liberals' taxing and spending policies.

Given that above all else in the mind of the public the Liberal Party stands for fiscal prudence, when it is the ALP promising to cut public expenditure and reduce the size of government, the Liberals have a problem.  The problems get worse when it is appreciated what else has been lost.  The principles of federalism and constrained government have been a core doctrine of the party since Menzies.  Now they exist in name only.

The 2007 federal election could, for the moment at least, signal "the end of history" in Australian politics.  Aside from some inconsequential differences, the major parties are characterised by the extent to which they agree.  "Vision" hasn't featured in this campaign -- possibly because the Liberals and Labor share the same vision.

There are few groups more disappointed by this policy convergence than the country's academic and intellectual left.  And there are few groups that will have had less of an impact on the election outcome.  The totemic issues of the left will not determine the election result.  Yet if Kevin Rudd does become prime minister, it will be the left that will take the credit and clink their caffe lattes in celebration.

It is ironic that it will be the votes of those the left disdains that could determine the election result.  The rise of the McMansion, and the rise of the families who aspire to own a McMansion and who are willing to take large mortgages to do so, has been the social phenomenon of the decade that has done the most to raise the ire of the left.  Anyone concerned about keeping their job and paying their mortgage has been castigated as materialistic and voting out of "self-interest".

By using the phrase "working families", Rudd has effectively repudiated this sort of mindset while acknowledging as legitimate the concerns of "working families".  Indeed, the entire campaign against WorkChoices is based on economic self-interest.

Those who hate Howard and everything he stands for have for 11 years deluded themselves with a convenient fiction.  According to them, the Prime Minister is to blame for everything from the failure of the republic referendum to the fact that the Japanese still hunt humpback whales.  If only it was so simple.  The frustration of the left is that to a large extent John Howard merely reflects that attitudes of his, and their, fellow citizens.

How John Howard changed Australia will be debated for years to come.  As a self-described "conservative", the Prime Minister has never regarded it as his role to change either the country or its people.  This is different from someone such as Paul Keating who had the arrogance to imagine the opposite.


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Wednesday, November 21, 2007

Carbon copies the order of the day

Over the weekend, the Intergovernmental Panel on Climate Change (IPCC) issued its "synthesis" report of the previous major papers released this year.  Though Opposition Leader Kevin Rudd put ratification of the Kyoto Protocol as main priority, the differences on carbon emissions policies between the parties are remarkably small.

Rudd launched an initiative to increase the renewable requirements for electricity to 20% of the total.  He said the annual cost would be only about $10 a head.  These figures are based on modelling by McLennan Magasanik Associates (MMA) commissioned by the Renewable Energy Generators of Australia.

If the cost is really so trivial, what is all the fuss about?  If we can achieve 20% renewables for $10 a head why not go a lot further?  How much would it cost to go to 40%?  Would doubling the share be only $20 per head?  Or if we are counting the increment over and above existing commercial hydro power might not the cost be a still modest $40 per head?

If Rudd and Prime Minister John Howard really believed the figures, they would be in a race to outdo each other with ever-increasing green requirements.

Australia has a hotch-potch of measures targeting the greenhouse issue.  Neither the Government nor the Opposition has quantified the overall costs of the present mixture of taxes, subsidies, tradeable emission certificates and downright command-and-control measures.

The variety of these makes it difficult to estimate how much the economy is being penalised.  But the cost is highly relevant -- the debate is all about how much pain political parties are willing to inflict on consumers and industry.

The present measures include requirements such as the Commonwealth's Mandatory Renewable Energy Target (MRET).  This and the state schemes involve consumer subsidies to renewable generators at an annualised cost of $600-850 million.

There is a further $499 million in federal spending on climate change programs identified by the Commonwealth's Department of Environment.

Over and above this are expenditures at least partly justified by greenhouse concerns.  Among these is increased spending on the Great Barrier Reef, on "ecologically sustainable" fishing, environment research, "green" buildings, "sustainable" cities and the $8000 subsidy for photovoltaics announced in a year with a budget set at $150 million.

State governments also have policy instruments that add costs to reduce energy and greenhouse emissions.  The most important are five-star measures on housing, which add $7000-$14,000 to the price of a new house and in aggregate annually cost $1-2 billion.

Also included are the energy efficiency standards on fridges and other appliances.  And the Australian Greenhouse Office (AGO) has similar regulations ready to be introduced covering other energy-using purchases.

All this expenditure comes to about $3000 million a year.

The Government and the ALP say they favour a carbon tax or its equivalent.  Both argue this is more efficient.  But neither has tried to quantify the present measures as a tax or tradeable right equivalent.

In fact, the $3 billion a year in current programs can be used to estimate the carbon tax effects.  Current expenditure and regulatory measures are equivalent to a tax of $10 a tonne of carbon dioxide on stationary sources such as power generation (which emit 280 megatons).

Except for true believers in environmental catastrophe, the issue is all about posture.  The naked politics driving this debate is illustrated by the approach to nuclear power.  The ALP has castigated the Government for considering this and, as a result, the Government has run dead on the issue.

Yet, if a drastic reduction in greenhouse gas emissions is to be introduced, there is no known means other than using nuclear power.  Unfortunately politics out-trumps sound government in an election campaign.

Hopefully, once the election is over, populist approaches will be less dominant.


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Tuesday, November 20, 2007

Time for Rudd to steel himself

One defining but unaddressed business issue in this election is occupational health and safety (OHS) laws.  In fact, it is a core issue upon which business can assess whether a Rudd government will be for or against business.

To win the election, the Labor Party needs substantial business support -- or at least neutralise business's fear of its union connections.  History supports this. Bob Hawke was a master at carving out business backers with whom he worked, while Mark Latham was aggressively against business.

Kevin Rudd is displaying a near Hawke-like talent, although with a different style.  His problem is that union marketing campaigns against Work Choices rely heavily on class-warfare demonisation of business.  The negative side to this otherwise successful marketing technique has been the creation of significant business fears about unleashed union power under a Rudd government.

In response, Rudd has methodically moved to neutralise these concerns.

Rudd has sacked high-profile aggressive union leaders from the Labor Party.  He has softened the worries of the big construction companies by agreeing to keep the construction industry reforms in their present form for at least two years.  He has chased the independent contractor sector by substantially adopting John Howard's policy of keeping contractors out of industrial laws.  He is retaining bans on strikes during agreement periods and is limiting union right of entry.

Differences between Howard and Rudd on workplace issues remain, but they have narrowed.  Rudd may be looking impressive but business's concern is that, in government, Labor's factional deals will return power to unions.  This is Howard's accusation.  For business, it is hard to know the truth.

However, work safety laws provide a real and immediate test for Rudd and an indicator for business on several levels.  Recently, the Labor Party released its OHS policy.  It is committed to a process of national harmonisation of state laws, which is good and much needed.  But the policy is deathly quiet on the principles of OHS laws that a Rudd Labor government would follow.

This is where Labor factionalism collides with Rudd's political pragmatism.  On most policy principles Rudd has firmly declared his position as leader, but on OHS he is uncommitted.

The policy extremes are starkly demonstrated when comparing NSW with Victorian OHS laws.  One policy is built on a near manic distrust of business, the other on a partnership with business.

NSW assumes business is bad and automatically applies guilt to employers under OHS criminal law -- with no access to normal courts or rights of appeal.  On the other hand, employees have fair treatment, with a proper presumption of innocence.  Unions conduct OHS prosecutions and invade worksites using OHS excuses without legal restraint -- a mockery of Labor's commitment to equity and justice.

Victoria reformed its laws under the Bracks Labor government.  Presumption of innocence applies to employers and employees alike;  prosecutions by the state proceed in normal criminal courts with full rights of appeal;  and unions have the right to enter worksites for OHS purposes, but with significant legal constraint.

There is no middle path between these models.  The other states mostly follow Victoria, whose model is designed on internationally accepted principles.  NSW breaches international principles.  For national OHS harmonisation to succeed, one model will have to prevail.

NSW is a mess.  The state government tried to reform its laws this year but unions and Labor factions revolted.  Consequently, NSW blocked much-needed national harmonisation.

Here is the indicator for business.  Rudd's inertia on declaring national OHS policy principles may indicate his capture by Labor factionalism.  A Rudd government might operate like the NSW lemma government, which doesn't move without factional and union blessing.

One outcome is grinding indecision.  The other is that Rudd may be forced to adopt NSW-style laws nationally.  Every employer would have the presumption of guilt applied to them.  It would mean a national government that allowed unions to turn their marketing mantra of employer hate into a policy and behavioural reality.

While Rudd puts Labor Party factional management above the declaration of clear OHS policy principles, business's pre-election fears have cause to exist.


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Monday, November 19, 2007

Should they crash and burn...

Labor must not:

IF Labor loses the federal election, there are four things the party must NOT do, if it wants to win in 2010:

1. DROP KEVIN

Rolling the leader after an election loss is as traditional as sacking the coach of the footy team that gets the wooden spoon.  Even if it doesn't happen immediately, it will eventually.  It was only because Kim Beazley was a good bloke and came close in 1998 that the Labor Party allowed him to continue as leader, and lose again in 2001.  Simon Crean wasn't even given the chance to fight an election.  Sadly, most people in the ALP now believe that not only should Mark Latham not have been allowed to captain the side, he shouldn't even have been on the teamsheet.

Rudd has to be given credit.  In the midst of the greatest economic boom in a century and with record low inflation, interest rates and unemployment, Kevin Rudd has succeeded in making everyone feel miserable.  Thanks to him the electorate was willing to contemplate voting against a government that has presided over the best financial conditions in living memory.  He campaigned against John Howard without really campaigning against him.  Labor's entire political strategy for the 2007 campaign can be summed up as "Vote for the change you have when you're not really having a change".

Political genius comes close to describing the magnitude of Rudd's achievement.  The solutions he proposed to help "working families" -- basically to call various government inquiries -- wouldn't have made much of a difference but they did change the terms of the political debate.  It was the same with Rudd's "plans" for Australia.  There wasn't much detail in those "plans" but the electorate didn't seem to care.

2. Let the ACTU write Labor's next industrial relations policy.

Australians believe in "a fair go" but this doesn't mean they're willing to trust the administration of the country to trade unions.  The campaign against WorkChoices orchestrated by the ACTU got publicity, but it didn't present any policy alternatives.  The reality is that the number of employers who manipulated the new laws to "exploit" their employees was miniscule.  Most employees like being given the choice to negotiate their own terms and conditions with their employers.  A better educated, higher-skilled workforce doesn't need the protection of unions.

Only 20 per cent of Australian employees belong to a trade union.  Labor needs to demonstrate that its industrial relations policy will not return Australia to the bad old days of the past.  The ALP never effectively repudiated the line from Greg Combet:  "I recall we used to run the country and it would not be a bad thing if we did again."

3. Promise an education "revolution" and not deliver.

Who did Kevin Rudd think he was kidding?  It's hardly revolutionary to promise every student a computer -- it should have been done years ago.  Revolutions don't happen overnight.  A real education "revolution" would be to ensure that every child who finished primary school was able to read and write.  No education minister -- federal or state -- has ever made that guarantee.  While Kevin Rudd is shopping for ideas here are a few more:  double the size of the Coalition's promised rebate to parents for educational expenses and make it subject to a means test;  force state governments to allow private, profit-making companies to run government schools and pay the companies a bonus if they improve students' results;  and measure teacher performance and pay the best teachers more.

4. Assume beating Peter Costello will be easy.

Sooner or later Peter Costello will replace John Howard as prime minister.  The ALP has convinced itself that Costello is unpopular as treasurer -- but this doesn't necessarily mean he would be an unpopular prime minister.  Some of the issues that Costello has already spoken about, for example the republic, will be used to redefine the image of the Liberal Party and attract the support of a younger generation of voters.

Tax, and the fact that Australians pay too much of it, will continue to be a major policy issue.  If Costello as PM instigates further major tax cuts he'll have built for himself a powerful political platform.  Costello as leader would probably make wholesale changes to the make-up of Cabinet.  Many of the government ministers that Labor and the left love to hate would be gone.

Something else to remember is that Costello is the Coalition's most effective parliamentarian.  The contest for the Canberra press gallery will be between Costello the debater and Rudd the diplomat.  It is a contest that, at least on paper, Costello would be favoured to win.


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