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UK Growth Performance John Van Reenen: Centre for Economic Performance & LSE BIS Evidence Based Policy Workshop on Growth June 13th 2012 RECOVERY FROM THIS RECESSION IS VERY SLOW – UK GDP STILL OVER 4% BELOW 2008 LEVELS IN 2012 1980s 1930s Current Source: NIESR 2 Summary • Given current gloom, UK did surprisingly well post 1997 even after including current recession – Fast GDP per adult growth in G6 – Not “bubble” in finance (or public sector, property or oil) • More than continuation of improvement after Mrs. Thatcher Policies likely played a part • “Output gap” may be larger than supply side pessimists think – Implies room for Plan B, slowing fiscal consolidation • Long-run growth strategy (LSE Growth Commission) – Get economic environment right – Relentless focus on removing barriers in sectors with strong global growth where UK has comparative advantage 3 1 UK Relative Economic Performance since 1997: Growth, productivity and jobs 2 Role of Policy? 3 The Great Recession and Beyond 4 Policies for Growth 4 UK growth in GDP per capita faster than every other G6 country Annual average growth GDP per capita & GDP per adult, 1997-2011 1.60 1.40 1.20 1.00 0.80 0.60 0.40 0.20 UK Germany US GDP per capita (person) France Japan GDP per capita (adult) Italy Focus for next few slides Notes: OECD data GDP is US$, constant prices, constant PPPs, (OECD based year: 2005). Adults are civilian population over 16. US Bureau of Labour Force Statistics. 5 Growth in GDP per capita since 1997 in G6: UK pretty good Annual average growth GDP per capita & GDP per adult, 1997-2011 1.60 1.40 1.20 1.00 0.80 0.60 0.40 0.20 UK Germany US GDP per capita (person) France Japan GDP per capita (adult) Italy Focus for next few slides Notes: OECD data GDP is US$, constant prices, constant PPPs, (OECD based year: 2005). Adults are civilian population over 16. US Bureau of Labour Force Statistics. 6 GDP per adult growth (1997=100) in UK 130 110 2011 2009 2007 2005 2003 2001 1999 1997 1995 1993 1991 1989 1987 1985 1983 1981 100 1979 Real GDP per w.a.a. relative to 1997 120 90 80 70 60 UK US Germany France Notes: CB data GDP is US$, constant prices, constant PPPs, (CB based year: 2011). Adults are civilian population over 16. US Bureau of Labour Force Statistics. Data for Unified Germany from 1991. 7 GDP per adult growth (1997=100) in UK and US 130 110 2011 2009 2007 2005 2003 2001 1999 1997 1995 1993 1991 1989 1987 1985 1983 1981 100 1979 Real GDP per w.a.a. relative to 1997 120 90 80 70 60 UK US Germany France Notes: CB data GDP is US$, constant prices, constant PPPs, (CB based year: 2011). Adults are civilian population over 16. US Bureau of Labour Force Statistics. Data for Unified Germany from 1991. 8 GDP per adult growth (1997=100) in UK, US, FRA 130 110 2011 2009 2007 2005 2003 2001 1999 1997 1995 1993 1991 1989 1987 1985 1983 1981 100 1979 Real GDP per w.a.a. relative to 1997 120 90 80 70 60 UK US France Notes: CB data GDP is US$, constant prices, constant PPPs, (CB based year: 2011). Adults are civilian population over 16. US Bureau of Labour Force Statistics. Data for Unified Germany from 1991. 9 GDP per adult growth (1997=100) UK,US,FR, GER 130 110 2011 2009 2007 2005 2003 2001 1999 1997 1995 1993 1991 1989 1987 1985 1983 1981 100 1979 Real GDP per w.a.a. relative to 1997 120 90 80 70 60 UK US Germany France Notes: CB data GDP is US$, constant prices, constant PPPs, (CB based year: 2011). Adults are civilian population over 16. US Bureau of Labour Force Statistics. Data for Unified Germany from 1991. 10 GDP per adult (absolute levels) GDP per working age adult (2011 $ , PPP) 70,000 65,000 60,000 55,000 UK 50,000 US 45,000 Germany 40,000 France 35,000 30,000 2011 2009 2007 2005 2003 2001 1999 1997 1995 1993 1991 1989 1987 1985 1983 1981 1979 25,000 Notes: CB data GDP is US$, constant prices, constant PPPs, (CB based year: 2011). 11 Growth decomposition Basic “welfare” measure GDP GDP Employees x Capita employee population Labour productivity Employment Rate 12 Productivity: GDP per worker growth (1997=100) 130 110 2011 2009 2007 2005 2003 2001 1999 1997 1995 1993 1991 1989 1987 1985 1983 1981 100 1979 Real GDP per worker relative to 1997 120 90 80 70 60 UK US Germany France Notes: CB data GDP is US$, constant prices, constant PPPs, (CB based year: 2011). 13 Productivity: GDP per hour growth (1997=100) 130 120 2011 2009 2007 2005 2003 2001 1999 1997 1995 1993 1991 1989 1987 1985 1983 1981 100 1979 Real GDP per hour relative to 1997 110 90 80 70 60 50 UK US Germany France Notes: CB data GDP is US$, constant prices, constant PPPs, (CB based year: 2011). 14 Employment Rate (Workers per adult) growth 2011 2009 2007 2005 2003 2001 1999 1997 1995 1993 1991 1989 1987 1985 1983 1981 100.00 1979 Employment per w.a.a. relative to 1997 110.00 90.00 80.00 UK US Germany France Notes: CB data GDP is US$, constant prices, constant PPPs, (CB based year: 2011). 15 Employment per adult 0.70 0.65 UK 0.60 US Germany France 0.55 1979 1980 1981 1982 1983 1984 1985 1986 1987 1988 1989 1990 1991 1992 1993 1994 1995 1996 1997 1998 1999 2000 2001 2002 2003 2004 2005 2006 2007 2008 2009 2010 2011 0.50 Notes: CB data GDP is US$, constant prices, constant PPPs, (CB based year: 2011). 16 UK still lags behind in total economy productivity levels GDP per hour levels (UK=100) 160% 140% 125% 112% 120% 120% UK=100 in each year 100% 80% 1979 60% 1997 40% 2007 20% 2011 0% US Germany France Notes: Analysis based on CB data GDP is US$, constant prices, constant PPPs. 17 The sources of productivity growth by sector : It wasn’t all finance in the 1997-2007 boom Sector contributions to market economy labour productivity growth (1979-2007) Annual average growth rates in percentage points 3.5 3.0 2.5 2.0 2.8 % p.a. 2.7 % p.a. 0.4 0.2 0.3 0.8 0.5 0.1 Financial intermediation Business services and renting of m&eq Distribution services Personal and social services 1.5 0.7 0.6 0.0 0.1 1.0 0.6 0.5 Manufacturing excluding electrical 0.4 0.5 -0.03 -0.05 Electrical machinery, post and communication 1979-1997 1997-2007 0.5 0.0 -0.5 Other goods producing industries Reallocation UK Notes: Analysis based on EU KLEMS data. Average sectoral growth rates for the periods 1979-1997 and 1997-2007 are weighted by each sector’s average share in market economy nominal GVA (GDP less taxes, plus subsidies) over the relevant period. Reallocation effect refers to the labour productivity effects of reallocations of labour between sectors that have different productivity. 18 The sources of productivity growth by sector : It wasn’t all finance in the 1997-2007 boom! Sector contributions to market economy productivity growth (1979-2007) Annual average growth rates in percentage points 3.5 3.0 2.5 2.0 Finance chopped off Business services and renting of m&eq Distribution services 0.3 0.8 0.5 Personal and social services 0.1 1.5 0.7 0.6 0.0 0.1 1.0 0.6 0.5 Manufacturing excluding electrical 0.4 0.5 Electrical machinery, post and communication -0.03 -0.05 1979-1997 1997-2007 0.5 0.0 -0.5 Other goods producing industries Reallocation UK Notes: Analysis based on EU KLEMS data. Average sectoral growth rates for the periods 1979-1997 and 1997-2007 are weighted by each sector’s average share in market economy nominal GVA (GDP less taxes, plus subsidies) over the relevant period. Reallocation effect refers to the labour productivity effects of reallocations of labour between sectors that have different productivity. 19 The sources of productivity growth by sector : It wasn’t all finance in the 1997-2007 boom! Sector contributions to market economy productivity growth (1979-2007) Financial intermediation 3.0 0.5 0.4 0.2 0.5 0.1 1.5 0.7 0.6 0.2 0.0 0.4 0.4 1.0 0.6 0.5 0.8 0.0 0.1 0.7 0.5 0.4 0.4 0.5 0.00 -0.02 0.2 0.0 -0.03 -0.05 0.3 0.00 -0.5 1997-2007 1979-1997 UK EU 0.5 0.4 0.7 -0.01 -0.1 US Distribution services Personal and social services 0.1 0.2 Other goods producing industries 0.5 Manufacturing excluding electrical 0.6 1997-2007 0.5 0.2 0.2 0.5 0.5 0.4 0.7 0.7 0.1 0.2 0.0 0.1 0.1 0.1 0.2 0.2 0.4 0.3 -0.01 0.0 0.03 1997-2007 0.1 0.2 1979-1997 0.8 0.5 1979-1997 2.0 0.3 1997-2007 2.5 Business services and renting of m&eq 0.4 0.2 1979-1997 Annual average growth rates in percentage points 3.5 Electrical machinery, post and communication Reallocation France Notes: Analysis based on EU KLEMS data. Average sectoral growth rates for the periods 1979-1997 and 1997-2007 are weighted by each sector’s average share in market economy nominal GVA (GDP less taxes, plus subsidies) over the relevant period. Reallocation effect refers to the labour productivity effects of reallocations of labour between sectors that have different productivity. EU represents all EU-15 countries for which growth accounting could be performed, i.e. AUT, BEL, DNK, ESP, FIN, FRA, GER, ITA, NLD & UK. Data for France and EU are available from 1981 onwards. 20 Sources of productivity growth: Skills and ICT became more important post 1997 Sources of market economy productivity growth (1979-2007) 3.5 3.0 2.8 % 2.7 % 2.5 1.2 1.0 2.0 1.1 0.4 Efficiency (TFP) 0.9 1.5 1.0 1.1 0.7 0.5 0.5 0.7 ICT capital per hour 0.7 Labour composition 0.6 0.7 1.0 0.5 Non ICT capital per hour 0.9 0.8 0.6 0.5 0.3 1979-1997 1997-2007 UK 0.3 0.4 0.5 0.3 0.2 0.2 0.3 1979-1997 1997-2007 1979-1997 1997-2007 EU 0.5 0.4 0.8 US 0.4 0.4 0.3 1979-1997 1997-2007 France Notes: Analysis based on EU KLEMS data. EU represents all EU-15 countries for which growth accounting could be performed, i.e. AUT, BEL, DNK, ESP, FIN, FRA, GER, ITA, NLD & UK. Data for France and EU are available from 1981 onwards. 21 Other measures of business performance • Focus on productivity because it’s key measure of long-run performance for economists • But also look at – Investment (overall and FDI) – Innovation – Education and skills – Management – Entrepreneurship – Profits – Trade – Regional Inequality • Overall, more of a mixed bag. Positive trends but still problems in levels 22 The UK has been successful at attracting FDI, with inward FDI higher than comparators Inward Foreign Direct Investment Flows (% GDP) 12% 10% 8% 6% 4% 2% 0% Germany France UK US Notes: Analysis based on OECD data 23 R&D has increased slightly as a proportion of GDP between 1997 and 2007 after falling since late 1970s Gross Domestic Expenditure on R&D (GERD), as a % of GDP 4% 3% 2% 1% 0% Finland Japan US 1981 Germany France 1987 1997 UK Canada Italy 2007 Notes: OECD MSTI June 2010 (data not available on a consistent basic prior to 1981) 24 Proportion of workers with a college degree has risen faster in UK than other countries Percentage of 25-64 year old population by educational level 100 90 3.2 % p.a. 1.7 % p.a. 23 33 80 34 1.0 % p.a. 2.9 % p.a. 23 20 25 27 41 70 60 39 37 50 37 40 61 52 Tertiary education 43 Upper secondary and postsecondary non-tertiary 60 48 Below upper secondary 30 20 41 41 30 10 30 14 11 1997 2008 17 15 1997 2008 - 1997 2008 UK US Germany 1997 2008 France Notes: Data from OECD Education at a Glance (2010) 25 Summary of UK performance 1997-2011 • Pretty good performance even if we include post 2008 • Continues 1979-1997 trend: UK GDP/cap grew faster than both the US and France • Productivity growth was broad based – finance only a small contribution (business services and distribution matter more) • Growth of efficiency (TFP) similar in both Lab and Con periods, but bigger contribution from skills and new technology post 1997 • Other indicators also show signs of improvement but level of productivity and other business indicators remains a problem 26 1 UK Relative Economic Performance since 1997: Growth, productivity and jobs 2 Was the UK’s strong post 1997 Performance anything to do with Policy? 3 The Great Recession and Beyond 4 Policies for Growth 27 UK performance 1997-2010 looks good..... • But was any of this was due to policy? – Government reaped dividends of Conservative reforms: privatisation, anti-union laws, “lame duck” subsidies • Conservatives reforms were unlikely to cause permanent increase in the rate of productivity growth (e.g. unions). • Likely that some policies contributed: – Competition, Education, Innovation & (maybe) immigration – Welfare to work reforms • Caveat: Lack of proper evaluation of most UK policies means much guesswork 28 Competition Policy • Strong evidence that increases in product market competition boost productivity – Empirical findings in Nickell (1996), Blundell et al (1999), Symeonidis (2000), Bloom & Van Reenen (2007, 2010), Holmes and Schmitz, (2010); MGI survey • 1998 Competition Act & 2002 Enterprise Act. Competition authorities (Competition Commission & OFT): – Stronger (e.g. Cartel punishments & whistle blowers) – Less politicised (e.g. Merger policy) – More autonomous & better resourced • Utility Regulation (2003 Communication Act & Ofcom Strategic Review) 29 Innovation Policy • Growth theory puts innovation at centre of productivity growth – “Spillovers” imply that too little R&D performed • Empirical evidence shows that: – R&D boosts productivity growth – Tax incentives increase R&D (Van Reenen et al, 2002, 2012) • UK R&D tax credit for small firms introduced in 2001 & extended to large firms in 2003 • Increases to the science budget (Haskel et al, 2010) • R&D/GDP falling since ‘70s, but stabilised from mid- 2000s 30 Education Policy • Increases in human capital increase productivity via higher average labour quality but also through “spillovers” (e.g. Innovations). • Quantity of education increased through – Expansion of Higher Education – Higher staying on rates (e.g. EMA, see Dearden et al. 2009) • Quality of Education? – City Academies (Machin and Venoit, 2011) – Teaching interventions like Literacy & Numeracy Hours (McNally, 2010) – More qualifications, but concern over grade inflation 31 1 UK Relative Economic Performance since 1997: Growth, productivity and jobs 2 Was the UK’s strong post 1997 Performance anything to do with Policy? 3 The Great Recession and Beyond 4 Policies for Growth 32 Did the Great Recession change everything? 33 Did the Great Recession change everything? 34 The Output Gap Debate GDP at market prices (2008 £ million) 450,000 400,000 16% 350,000 300,000 250,000 GDP Pre crisis trend 2012 Q1 2011 Q1 2010 Q1 2009 Q1 2008 Q1 2007 Q1 2006 Q1 2005 Q1 2004 Q1 2003 Q1 2002 Q1 2001 Q1 2000 Q1 1999 Q1 1998 Q1 1997 Q1 200,000 2005 -2006 Trend Notes: ONS Q1 2012 Quarterly National Accounts, GDP in £ million, in real terms at market prices (seasonally adjusted) 35 Did the Great Recession change everything? • What are the effects of Great Recession on potential output – How much output permanently lost? – Lower productivity growth? Very unlikely (1930s policies) • Low Demand (recession, Eurozone, austerity) – Model of partial Labour hoarding (especially in high productivity sectors) can match trends – Labour market performing relatively well in this recession: Wages and matching • Supply Side Pessimists ‒ Compositional shift out of high value added sectors like finance not large enough to account for productivity falls ‒ Capital-Labour ratio rises ‒ Skills & Innovation 36 The Great Recession and beyond • What are the effects of Great Recession on potential output – How much output permanently lost? – Is economy on a lower productivity growth trend? • “Output Gap” is difference between potential & current output – If economy near full capacity output gap is close to zero, so if demand increases (e.g. Expansionary monetary and fiscal policies translate into higher inflation) – Supply side pessimists view that output gap is small/zero – OBR 2.5% vs. 14% (or 9.5% in Martin & Rowthorn, 2012) 37 Estimating the Output Gap (“educated guesses”) 1. Statistical Filters – Transparent, but depends on period over which one “smooths” 2. Production functions (OECD, EC, NIESR) – Based on economic model, but sensitive to judgements, measurement and data revisions 3. Business surveys (Office Budget Responsibility) – Uses wider range of timely information, but survey measurement issues & needs scaling to another method 4. Semi-structural approaches (IMF- Global Projection Model) – More rigorous but very sensitive to econometric specification 38 Pessimists: banking crisis reason for permanent damage • Direct effect : banking a high productivity sector & shift of workers into other industries dampens aggregate productivity – But in long-term better allocation of UK talent to sectors creating positive spillovers (e.g. High tech manufacturing & ICT) – Evidence on direct effect suggests only small (e.g. Martin, 2011; BoE, 2011). Productivity fell a lot in in finance, but large falls were witnessed in others sectors too. • Indirect effects of banking crisis – Less efficient allocation of capital – Fewer new company formations, capital scrapping or liquidations – Evidence is unclear (Oulton, 2012). Although crises followed by slow growth (i) depends on policy response, (ii) lots of heterogeneity 39 Indirect Evidence for Pessimists • Recent poor growth performance – Global demand low. Real improvements pre-2007 • Oil Producing Sector in decline – Long trend, oil not big contribution to productivity 1997-2007 • High inflation shows we have little spare capacity – Mainly “imported” inflation – domestic wages inflation very low • Hiring in 2010-11 evidence for little spare capacity? – Real wage cuts keep jobs up – Partial labour hoarding with expansion of low productivity sector based on over-optimistic growth of sales (Martin & Rowthorn, 2012) . Second half of 2011 job growth stalls • Business Surveys – But answers adjust to the cycle 40 1 UK Relative Economic Performance since 1997: Growth, productivity and jobs 2 Was the UK’s strong post 1997 Performance anything to do with Policy? 3 The Great Recession and Beyond 4 Policies for Growth 41 Policies • To promote long term growth we need to: – Expand the potential of the economy via supply side policies (LSE Growth Commission) – Run the right macro policies: helping recovery from recession by running at current potential • Many important factors are outside direct influence of UK economic policy (e.g. Eurozone, US debt ceiling, China, ….) • Nevertheless, UK domestic policy does matter. 42 In designing long term supply side policies, key points are: • Listen to what Growth theory tells us: Importance of innovation, human capital, competition & creative destruction, good governance • Admit our “collective ignorance”: There is no single “magic bullet” to growth – need to experiment, evaluate and learn. • Prioritise & think of overall strategy • Appreciate the complementarities or trade-offs between policies: “laundry lists” are not enough (though we will give one in a minute!) 43 “Plan V” strategies involve the right environment for growth, and some targeted enabling policy • Economists rightly wary of too interventionist a stance • Despite this most governments do have a de facto industrial policies (e.g. towards exports and FDI). • Policies should be focused on the intersection between the areas of global growth and local comparative advantage. – Areas like: bio-pharmaceuticals, financial and business services, creative industries and some areas of ICT – Look at barriers and useful pro-active policies 44 Some specific “Plan V” policies which we will briefly run through… • Competition • Education and skills • Infrastructure • Financial markets • Higher education • Immigration • Public sector productivity • Regulation and planning • Taxation 45 Long-run growth policies: some thoughts • Competition • Education and skills • Infrastructure • Merger of OFT and CC could be a distraction • Higher education • Stalling of greater international market integration • Immigration • Dangers of trade protection • Financial markets • Public sector productivity • Regulation and planning • Taxation 46 Long-run growth policies: some thoughts • Competition • Education and skills • Literacy and numeracy rates • Infrastructure • Education leaving age • Financial markets • Higher education • Apprenticeships for under 19 year olds • Immigration • Public sector productivity • Regulation and planning • Taxation 47 Long-run growth policies: some thoughts • Competition • Education and skills • Infrastructure • Financial markets • Higher education • Immigration • Public sector productivity • Regulation and planning • Taxation • Public investment (at a time of low interest rates) will not “spook” markets • Many smaller projects – larger and less risky returns than “grand projet” • Expand remit of GIB • Transport (re-read Eddington!) 48 Long-run growth policies: some thoughts • Competition • Education and skills • Infrastructure • Financial markets • Higher education • Immigration • Higher capital requirements, living wills • Vickers agenda – plus? • SME access to finance (KfW style bank?) • Public sector productivity • Regulation and planning • Taxation 49 Long-run growth policies: some thoughts • Competition • Education and skills • Infrastructure • Financial markets • Higher education • Immigration • Public sector productivity • Regulation and planning • Human capital, scientific innovation and an export industry • Risks of tougher immigration policy for highly skilled • Taxation 50 Long-run growth policies: some thoughts • Competition • Education and skills • Infrastructure • Financial markets • Higher education • Immigration • Public sector productivity • Regulation and planning • Direct role on GDP • Productivity effects of immigration in general unclear • Free movement of highly skilled workers, including scientists a “no brainer” • Taxation 51 Long-run growth policies: some thoughts • Competition • Education and skills • Infrastructure • Financial markets • Higher education • Immigration • Public sector productivity • Regulation and planning • Taxation • Competition, information & choice • Design implementation needs care (e.g. NHS price competition) • Need more geographical (& individual) variation in public sector pay 52 Long-run growth policies: some thoughts • Competition • Education and skills • Infrastructure • Financial markets • Higher education • Immigration • Public sector productivity • Regulation and planning • High tech clusters held back by planning system • Planning and retail productivity • Labour market regulation & Beecroft. Not UK’s major problem • Taxation 53 Long-run growth policies: some thoughts • Competition • Education and skills • Infrastructure • Financial markets • Higher education • Immigration • Public sector productivity • Regulation and planning • Taxation • Agree with thrust of Mirrlees • Real issues with complexity and instability rather than marginal rates • Removal of special deductions (e.g. IHT and family firms), removing corporate tax bias towards debt 54 Conclusions and discussion • UK growth record since 1997 pretty good & broadly continued trend from 1979 • Not solely “unbalanced” bubble from finance, property & government • Some benefit from policies over competition, education & innovation • In presence of significant output gap room for slowing fiscal consolidation • Long term policies need coordinated strategy drawing on lessons from past 55 References • LSE Growth Commission http://cep.lse.ac.uk/LSEGrowthCommission/ • Full version of the Report • http://cep.lse.ac.uk/conference_papers/15b_ 11_2011/CEP_Report_UK_Business_15112011 .pdf 56