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Opinion: How a GST would boost the economy and why bigger reform would be even better

Posted in News

By Adolf Stroombergen from Infometrics

Many people do not support an increase in GST, or so the polls tell us. I recall the same popular sentiment in 1986 when GST was first introduced. At that time there was a natural fear about a type of tax that was unfamiliar to most New Zealanders. Would it work? Would politicians deliver the accompanying income tax cuts? Who would gain and who would lose? Would government be bigger or smaller? Perhaps these fears still exist even though the change being talked about this time is much less dramatic.

The policy options currently on the table involve a change in the tax mix that deliver the same amount of revenue to the government. Whether the total tax take is too high or too low – whether government is too big or too small – is a different issue. The aim of the current proposals for tax reform is to find a better way to collect the same amount of tax revenue. What is meant by a better way? One that is more conducive to economic growth, fairer to those who can least afford to pay, easier to understand, more difficult to avoid and cheaper to comply with and administer.

Compared to GST, income tax is easier to avoid, more costly to administer, more complex and, as a result more unfair. Its interaction with welfare benefits warps the incentive to work and thus impedes economic growth. So what sort of advantages might an increase in GST coupled with a revenue neutral reduction in personal income taxes actually deliver?

In some preliminary analysis with an economy-wide model I investigated the impacts of raising GST to 15%. This would raise enough revenue to fund a uniform proportional reduction in all personal income tax rates of about 10%. For example the 38% rate would drop to 34% and the 21% rate to about 19%.

The changes may not look like much, but the wider economic effects are quite dramatic:

  1. An increase in employment of 17,500 full time equivalent jobs.
  2. An increase in real income of an average $250 per person per year.
  3. An increase in real household spending of $420 per household per year.
  4. An increase in aggregate household savings of $280m, contributing to a lift in aggregate real investment of almost half a billion dollars per annum.

These are aggregate effects, clearly demonstrating how a change in the tax mix affects economic growth. But what of distributional considerations?

The media is fond of presenting examples of people who would ostensibly be worse off under an increase in GST. For example it is easy for an unemployed person to complain that they would be adversely affected by a lift in GST. Quite apart from any direct compensating increase in benefits, however, some of those who are currently unemployed would secure a job as a result of the 17,500 increase in employment.

Superannuitants gain via the linking of superannuation benefits to net wage rates, again in addition to any direct compensatory increase in benefit rates. These types of indirect effects are picked up in our economic modelling, but are absent in most reports that I’ve seen. They are crucial to properly investigating the impacts of tax reform.

In spite of these positive indirect effects though, a uniform proportional reduction in all income tax rates is probably not a likely option, nor even a desirable one. It would mean that the lowest 40% of households by income (who currently pay little if any net tax) would pay more in extra GST than they would receive back by way of income tax reductions. However, this situation would be relatively inexpensive to amend with the lowest 40% of households requiring an additional $7 or so per week – over and above the pro-rata reduction in income tax rates. A larger reduction in the lowest tax rate or an increase in tax credits could achieve such an outcome.

A key area of uncertainty is the responsiveness of different households to changes in tax rates. Lower marginal tax rates on income should increase the incentive to work, but how much is the response affected by age, the income of a partner, or the types of jobs available? Data released by the Tax Working Group clearly show that the worst distortions in the tax system occur at the lower end of the household income scale. Throwing out the mess that is Working for Families would make obtaining a job a much more financially attractive proposition to many people. This would put some households in a position where even though under higher GST they would pay more tax than they do now, their total income would increase sufficiently to make them better off in net terms. This is an avenue for more research.

The uncertainties notwithstanding, it is clear that the macroeconomic gains are significant for what is in effect a fairly minor shuffle of the tax mix. One wonders what sort of gains could be generated by more fundamental reform of the tax and benefit system. If the incomes of New Zealanders are ever going to catch up with the incomes of Australians, tax reform is likely to be an important step in the process.

* Infometrics is an economic information and forecasting company based in Wellington. To find out more, see its website here. This piece first appeared in the Dominion Post.

We welcome your help to improve our coverage of this issue. Any examples or experiences to relate? Any links to other news, data or research to shed more light on this? Any insight or views on what might happen next or what should happen next? Any errors to correct?

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26 Comments

"Compared to GST, income tax

"Compared to GST, income tax is easier to avoid". I'll take your word for that. In my opinion the higher an indirect tax, the more avoidence comes into play.
"How much for cash" will become even more of a catchcry. How does that increase the Governments tax take? Let's put GST up to 39% and see how much more they collect!

<i>“How much for cash” </i>

“How much for cash”

Doesn't even have to touch the books.
People still seem to play this 'straight' at the moment.
Seems to be that there are hidden limits to how much people think 'fair' with taxation, after which they actually 'moralise' that they are correct to fiddle.

The genuinely greedy do it regardless - but if you keep this number small, you'll have an easier job catching them.....

Minimising ones higher rate tax with 'investment' property. Was this done for 'tax efficiency' reasons? Consequences?

KWJ - You and I

KWJ - You and I aren't economists, and fail to grasp the wider theory behind this article.
That was the gist of the repost I received the last time I commented on this blog on an article written by Infometrics. Adolf Stroombergen and Gareth Kiernan have a more acedemic way of looking at the world than me.

Nicholas - Economists... are they

Nicholas -

Economists... are they the ones who know how to use the "What If" analysis functions on an excel spreadsheet?

In which case we may need to write other functions ('till they squeak" analysis).

good old <a href="http://en.wikipedia.org/wiki/Excess_burden_of_

good old wiki.

'til they squeak'

In economics, the excess burden of taxation, also known as the distortionary cost or deadweight loss of taxation, is the economic loss that society suffers as the result of a tax, over and above the revenue it collects. It is assumed that distortions occur because people or firms change their behaviour in order to reduce the amount of tax they must pay. Excess burdens can be measured using the average cost of funds or the marginal cost of funds (MCF) . Excess burdens were first discussed by Adam Smith.

now for the excel function....

The key to understanding economists

The key to understanding economists is that if you can't understand them stop trying because it's highly likely what they are really saying is wrong. In fact given the over all record of economists to provide useful guidance for the last however many years, lots, the chances that what they are saying is wrong are far greater than them being right.

Hi Nicholas - if its

Hi Nicholas - if its any consolation I have a PhD in physics and I think Adoolf's posts fail the common sense hurdle every time too. His pronouncements on school standard testing remains an all time favourite example of know-it-all economist mis-applying empirical economic tenet's (its not a model unless it (a) gives an accurate numerical answer and (b) that answer changes depending upon input parameters).

In this case a "model" that can achieve a prediction accuracy to the closest 100 jobs that will be provided by a single taxation policy change is either in the crystal ball category or a crock of sh*t. Given the complete absence of details of this 'model", I know which view I tend to....

On the other hand i have at last found one statement he writes that i can agree with:
" Throwing out the mess that is Working for Families...."
Amen to that...

I mean to say why

I mean to say why even drop this line in.

"If the incomes of New Zealanders are ever going to catch up with the incomes of Australians, tax reform is likely to be an important step in the process."

New Zealand is not Australia never has been never will be. Lets just stop these ridiculous comparisons.

I think it's great...the more

I think it's great...the more they raise gst...the more I get for my free range eggs...and spare veg...and the extra fish caught..and eels...and for fixing the odd car..and painting the occasional house..not to mention the odd bit of handiwork inside a few houses..all in all it has to be said the higher they put gst the more work for me...for cash.

There probably isn't much difference

There probably isn't much difference between avoidance of GST Income Tax in the NZ system due to the NZ system due to the high penetration of PAYE. The difference arises because rich people have a higher incentive to structure their affairs than the poor. We call GST avoidance evasion, and can send people to jail for it: perhaps a societal prejudice in itself.

Frankly, I'm surprised at the economic naivete of this article, but it doesn't surprise me: I heard a member of the TWG state that GST is more efficient (because of its dead-weight advantages)... which is true, but we need economic effectiveness, not administrative efficiency...

As with many academics, there is a serious risk of obsession with elegance over delivery.

It is quite correct that

It is quite correct that the higher the rate of GST the greater the incentive there is to avoid it, the "discount for cash syndrome" But that is not the full extent if you avoid GST then anybody but a fool is also forced to under declare their income for Income tax. Thus if an increase of GST from 12.5% to 15% results in just one person doing jobs for cash it follows that for every $100 not going through the books the actual tax loss is $15 GST + $21 (if tax rate 21%) in income tax thus the Government has lost $36.

Avoidance/evasion, in the real world would anybody seriously decline to do a "cash in hand job" if offered? Scenario "how much for cash?" answer "sorry mate cannot do that" reply "ok see you bye bye... next please" You cannot feed your family with morals!

GST is paid when the

GST is paid when the cash is spent, not earnt.
So you do a 'cash' job, then spend it at the pub. The Govt gets the GST from the hotel.
Unless you hid the cash under the bed the GST is eventually collected, even the drug dealers pay GST when they buy their car.

So if I have $112.50,

So if I have $112.50, after PAYE, and need to get the toilet unblocked, and I pay the plumber $100 buck cash to do the job, I have $12.50 to spend down the pub on a beer. If I pay him through the books I have no beer money, so I don't pay GST as there is no purchase. The plumber has his $100 to buy 8 beers at the pub, regardless of GST ( ie: he charges/pays GST through his books) but still has the same $100 cash. What have I missed?

The Pub?

The Pub?

The pub pays $1.39 GST

The pub pays $1.39 GST on your $12.50 beer.
If the plumber puts the $100 thru his books he pays GST of $11.11 and has beer money of $88.89.
If the plumber doesn't put it thru his books, he as beer money of $100 and the pub pays GST of $11.11.

The Govt ends up with $12.50. The difference is how the $112.50 (less GST) is split between you, the plumber and the pub.

If the plumber ends up

If the plumber ends up damaging your toilet then you have no come back. No invoice or receipt to prove any work took place. You will also pay gst at the pub.

Hi Nicholas - buying beer

Hi Nicholas - buying beer with your extra 12.50 will set you back GST + liquor tax. better idea would be to put it on the mortgage (GST-free) - that way the government definitely does lose out. Or you could buy a homebrew kit from trademe or overseas e-bay (both GST-free).

The point being that GST works well as long as cases of avoidance are isolated and far between. As soon as the incentive to avoid rises it is possible for an entire black economy to emerge with no-one paying GST along the whole chain - much as happens in a number of southern european countries that find themselves in the PIIG muck at the moment.

Thanks Chris B I'd only

Thanks Chris B

I'd only got as far as buying dodgy things instead of the pint.

I'll work through your numbers,

I'll work through your numbers, NevilleWC, but my inference was that I would pay $112.50 to go through the books, not the $100 in your example. ( that's how the service cost remains unchanged at $100).
As I see it - cash - 9 beers get consumer ( me and the plumber); through books only 8 (just the plumber). That's GST on one less beer for the government?

Why pay gst on the

Why pay gst on the beer when you can squash the apples to get cider and swap the spare output for what you might need, including dental work and home made cheese!
Soooooo many ways to save. The most common are the chooks in the yard and the vege patch. Why stop there. Fatten some piglets and swap the homekill for honey.

I'm not against GST (or

I'm not against GST (or another form of consumption tax) but why do we need more tax to pay for an over size govt and more debt that's created off shore and which interest is to be paid? There has to be a better way...

I'm for GST or any

I'm for GST or any other form of tax that you pay as you use or that you can opt out of. I can't stand the farce that is ACC. I have paid nearly 30,000 dollars in the last 10 years to the ACC fund so far and gotten NOTHING. Why can't I opt out, I have more than enough cash to cover any accident that might befall me. Never used public healthcare in the last 30 years of my life yet a large portion of my tax dollars go there.

Wally - do you paint

Wally - do you paint under the counter................ or do you just leave it bare? :)

GST, as a form of

GST, as a form of taxation as any other, can only be deemed successful if revenue generated by government is spent (or shall I say, invested) wisely in areas that
increase trade, attract offshore investment in key sectors of the economy, support entrepreneurship, produce significant employment opportunities and reduce prices of basic commodities across a broad spectrum of our population. Along with that, there should also be a sustained focus and commitment on reducing the size of all local and national government bureaucracies.

Hands down one of the

Hands down one of the better posts I've come across.

GST, as a form of taxation as

GST, as a form of taxation as any other, can only be deemed successful if revenue generated by government is spent (or shall I say, invested) wisely

what u talking bout?

Thats a pretty narrow view of success and it's not where the investment comes from.  Plumber Joe doesn't want to buy beer number 8 because they're more expensive now so he leaves that money in his bank account where it is loaned out to key sectors of the economy to increase trade, fund entrepeneurs, fund significant employment opportunities so that prices of basic commodities are reduced across a broad spectrum of our population.

There should also be a sustained focus and commitment on reducing the size of all local and national government bureaucracies.  - Its easy to write on a blog isn't it. Just as easy as saying:

"There should be a focus on making the country perfect and having everything run like a well oiled machine so that we're the bestest in the world."