STANDARD OF LIVING OF CANADIANS |
December 1999
|
At their annual meeting in Québec City last August, the Premiers and
Territorial Government Leaders agreed, in the context of the significant growth
in international trade, that priority must be given to improving the
competitiveness of the Canadian economy.
Accordingly, they called upon the federal government to introduce a
balanced action plan including tax reductions and full restoration of the
federal cash transfer for social programs in general, including health,
post-secondary education and social assistance programs, through the existing
channel of the Canada Health and Social Transfer (CHST).
Premiers also agreed that quality infrastructure is one of the basic
components of a competitive economy. Therefore, they instructed their Ministers
of Finance to initiate discussions with their federal counterpart to examine
infrastructure development options. Lastly, the Premiers reiterated the
importance of Equalization, as stipulated in the Constitution.
This paper summarizes the views of provincial and
territorial Ministers of Finances and, with the approach of the next federal
budget, submits a concrete action plan for the implementation of the balanced
strategy advocated by Premiers.
Although the Canadian economy has achieved substantial progress over the
past years, major challenges remain. For
instance:
·
Even though Canada is enjoying one of its longest cycles of expansion,
with growth averaging 2.8% a year over the past seven years, in 1999, its per
capita GDP remains 30% lower than in the United States, whereas in the 1980s the
difference was only 20%.
·
Despite the fact that, since 1993, the Canadian unemployment rate has
fallen by three percentage points, in 1999 it remains 3.5 percentage points
higher than in the United States. Historically,
unemployment rates in Canada and the United States have been on par.
Difference
in Unemployment Rate (percentage points) |
Sources:
Statistics Canada, U.S. Bureau of Labor Statistics |
These
developments have occurred in a context of more open markets and exceptional
export growth. Thanks to NAFTA,
among other factors, Canada’s exports as a percentage of GDP have grown by
almost two thirds in 10 years, rising from 25.7% in 1989 to 41.3% in 1998.
Canada’s economic performance depends, more than ever, on its
competitiveness in foreign markets.
Difference
in Real Per Capita GDP (in percentage) |
Sources:
Statistics Canada, U.S. Department of Commerce |
In this new environment, Ministers of Finance are of the view that
governments’ actions must be geared towards bolstering the competitiveness of
the Canadian economy in order to stimulate the creation of permanent jobs,
create the wealth that is necessary to improve the standard of living of
Canadians and, thereby, maintain the social safety net that Canada has developed
over the last 40 years.
There are many ways that governments can act to support
and encourage the efforts of the private sector to make Canada’s economy more
competitive. A competitive tax
burden and quality social and physical infrastructures must support more
targeted initiatives focusing, for instance, on the development and distribution
of new technologies in Canadian companies.
At the same time, governments’ actions must remain
financially responsible and focused on priorities. They must not jeopardize the
major gains achieved in terms of improved public finances in recent years.
Furthermore, each order of government must contribute according to its
financial leeway.
In this regard, it must be pointed out that the federal government has
much more financial leeway than do the provinces and territories.
The Economic and Fiscal Update 1999 recently projected a cumulative $95
billion federal surplus over the next five years.
The federal government’s fiscal strength was also revealed in the recent
Throne Speech in which the federal government announced its intention of putting
forward a host of new initiatives, many of them in provincial jurisdictions.
The emergence of large and growing federal surpluses
reflects, to a considerable degree, a fiscal imbalance in the Canadian
federation. The Constitution makes the provinces responsible for delivering
programs subject to the greatest demand and cost pressure and for which
taxpayers have the highest expectations: health, education, social assistance,
infrastructures. These programs are
also key tools for improving competitiveness. And yet, taken together, the
provinces have less revenue than the federal government to fulfil these
responsibilities. Moreover, the
federal government has the greatest share of the revenue sources with the
highest growth potential, particularly personal income tax of which the federal
government collects over 60% of total revenues.
GROWING FISCAL IMBALANCE |
|
PROVINCES |
FEDERAL |
·
Health |
·
Old age security |
·
Education |
·
Employment insurance |
·
Income security |
·
Transfers to the provinces |
·
Public infrastructure |
·
Defence |
Own-source
revenues: $141 billion |
Revenue:
$157 billion |
The large and growing federal surplus provides an opportunity to make an
important contribution to improving the competitiveness of Canada and the
well-being of Canadians. The federal government should pursue these goals
through a balanced approach: reducing taxes and strengthening social programs
through an increase in the CHST.
Canadians bear a relatively heavy tax burden compared with that of our
main trading partners. Canada’s tax burden is eight percentage points higher
than that of the United States, where 85% of our exports are shipped. About half
of this Canada–United States differential reflects the provision of public
social programs in Canada which Americans pay for privately. However, a
significant difference in tax burden remains even when an allowance is made for
this situation.
Total Tax Burden, G7 Countries, 1996
(as
a percentage of GDP)
Sources:
OECD, Statistics Canada.
In
addition, a heavy tax burden reduces taxpayers’ disposable income. In this
regard, taxation has absorbed 60% of the increase in gross national product in
Canada between 1980 and 1996, compared with 34% in the United States and 32% in
the other G7 countries excluding Canada. Proportion of the Increase in GDP Absorbed by Taxation (as
a percentage, 1980-1996)
Sources: OECD, Statistics Canada.
Tax cuts and strong job creation increase consumer
confidence. Lower taxes also create the incentive for people to work harder and
longer to earn more income. Confident consumers with higher disposable income
are more likely to spend, thereby stimulating job creation and revenue growth
for governments. In addition, lower personal income taxes are important factors
in business location decisions involving highly skilled workers and may help
reduce the size of the underground economy.
In a similar way, lower business taxes contribute to a more competitive
cost structure for firms and help stimulate investment, a key factor for job
creation. Consequently, reduced
taxes would bolster the potential of the Canadian economy, contribute to lower
business costs and allow a rise in Canadians’ purchasing power. All governments in Canada have acknowledged that a sustainable reduction
in the tax burden must be a priority. In fact, since 1996, all governments have
reduced taxes. However, since the
federal government enjoys substantial financial leeway, it is in a position to
effect considerably larger tax reductions. A
coordinated approach Provincial and territorial Ministers of Finance are of the view that
Canada’s economy has a need for significant personal Income tax reductions and
they expect the federal government to announce such measures in its next Budget. Furthermore, they also insist on the need for the
federal government to coordinate its action in this field with the provinces and
territories. Under the Tax Collection Agreements, personal income tax in all provinces and territories, with
the exception of Québec, is calculated as a fraction of basic federal tax,
generally tying provincial and territorial taxes automatically to the federal
tax. Discussions should begin immediately between the federal government and
the provinces and territories to find the best way to prevent federal tax
reductions from aggravating the existing fiscal imbalance between the two levels
of government, and limiting the autonomy of the provinces and territories in the
conduct of their fiscal policy. The federal government is asked to consider as
options federal income tax rebates and accelerating the potential starting date
for the administration of tax on income for provinces and the territories into
2000. Healthy, well-educated workers are essential to a competitive economy. A
recent study[1]
by the Conference Board of Canada
confirmed that Canada’s publicly funded health care system provides a
competitive advantage to firms in this country. Furthermore, other studies[2]
have also confirmed the close link between a country’s competitiveness and the
skills of its labour force. In addition, the statistical evidence shows that
individuals with more educational qualifications are more likely to find a job
and to have higher earnings than people with fewer qualifications. As was indicated above, health, education and social assistance,
according to the Canadian Constitution, are provincial and territorial
responsibilities. Because of the major fiscal imbalance in the Canadian
federation and the significant cuts to federal transfers to the provinces and
territories, these programs have come under heavy pressure. The CHST is the primary instrument used by the federal government to
narrow the gap between provincial and territorial revenues and responsibilities
in this regard. The CHST was instituted in 1996-1997 as a block transfer to
replace the Canada Assistance Plan (CAP) and Established Programs Financing.
Recent experience clearly shows that the CHST is not playing its role.
Even with the partial restoration announced in the last federal budget, CHST
cash transfers will continue to fall in the medium term as a proportion of
provincial and territorial spending they help fund. In 2004-2005, it is expected
that CHST cash transfers will account for no more than 11.2% of provincial
social spending, i.e. 6.6 percentage points less than ten years earlier, in
1994-1995. CHST Cash Transfers as a Proportion of Provincial
In this context, it is particularly troubling to note
that the last Speech from the Throne announced a plethora of interventions in
areas of provincial jurisdiction – home care, drug insurance, national
children agenda, and skills and youth programs – instead of reinvestments in
core social programs via the CHST. This approach will divert financial resources
which otherwise should be directed to those core programs for which the
provinces and territories are responsible. Provincial and territorial Ministers of Finance firmly
believe that Canadians would be better served if social programs were to
continue being delivered through a focused, integrated system by the level of
government that is responsible for them, namely the provinces and territories.
Costly duplication and overlap following federal interventions would then be
avoided. Provincial
and territorial Ministers of Finance are of the view that in the
field of social programs, the federal government should direct new
spending initiatives to basic programs administered by the
provinces and territories, by means of the CHST, programs that
are, as indicated earlier, under considerable pressure. ·
full restoration, by 2000-2001, the CHST to its 1994-1995 level ($18.7
billion); ·
a plan to introduce an appropriate escalator for the CHST cash transfer
in order to secure adequate, growing funding for provincial social programs in
the medium term. At their annual Conference last August, the Premiers reaffirmed the
importance of the Equalization program in ensuring that all regions of Canada
can both contribute to and benefit from the improvement in competitiveness. Producers and employees in less affluent regions of the country cannot
maintain their presence in international markets if they face a heavier tax
burden than similar firms or individuals in provinces with deeper fiscal
pockets. Alternately, all Canadians must receive a comparable standard of public
services, health and education included. The Constitution commits the federal
government to achieving this outcome although Equalization payments, as a
percentage of federal revenues, have been declining for the past twenty years. Equalization as Percentage of Federal Revenues
The purpose of Canada’s Equalization program, as set out in section
36(2) of the Constitution Act of 1982, is to ensure that provincial governments
have sufficient revenues to provide reasonably comparable levels of public
services at reasonably comparable levels of taxation. The principle of
Equalization is also reflected in the Formula Financing Agreements for the
territories, which are designed to address the Territories’ limited fiscal
capacity. Provincial and territorial Ministers of Finances note that some
parameters of the program may limit its ability to achieve its Constitutional
objectives, in particular the presence of a ceiling on payments. Accordingly,
they ask the federal government to strengthen its commitment to Equalization and
announce in its upcoming Budget the elimination of the ceiling of the program in
concert with the restoration of CHST funding and the introduction of an
escalator for the CHST. This would parallel, to a degree, recent federal action
to reverse constraints affecting more affluent provinces under the CHST, namely
the removal of the “cap” on Canada Assistance Plan payments. Quality public infrastructure is a basic feature of a competitive
economy. For instance, in the context of rapid growth of international trade and
market globalization, a company’s ability to obtain supplies and, especially,
gain quick access to foreign markets for its products is crucial. In this regard, improving the highway system is a key element. However,
other elements, such as the development of port and airport infrastructures, intermodal
facilities and public transit systems, as well as other types of infrastructure
such as telecommunications, are also important. The presence of transportation
infrastructure is especially important for northern and remote regions. At their annual Conference last August, the Premiers and territorial
Government Leaders asked the Ministers of Finance to work with their federal
counterpart to examine infrastructure development options.
They also agreed on principles to guide these discussions (see appendix).
These principles underscored the importance of focussing on strategic
investments, under a plan that would be flexible enough to respect the autonomy
of provinces and territories and that would comply with their existing budgetary
frameworks. The Ministers of Finance have discussed these principles. They also noted
the federal government’s commitment stated in the Speech from the Throne to
work with the provinces and the private sector to agree, by the end of 2000, on
a five-year plan to improve physical infrastructure in urban and rural zones. They also pointed out that their priorities for improving competitiveness
as part of the next federal budget are, first of all, a reduction in the tax
burden, the action plan for the restoration of federal funding to the CHST with
an appropriate escalator in concert with the removal of the ceiling on
Equalization payments. However, given the financial leeway available to the
federal government, provincial and territorial Ministers of Finance are of the
view: ·
that discussions on the development of a new infrastructure program
should begin immediately, with the objective of announcing the broad outlines of
the program in the next federal budget; ·
that the new, multi-year program should be at least equal in value to the
original program; ·
that the distribution of federal funds among provinces and territories
should be equitable. Furthermore, special consideration should be given to the
needs of the territories in developing funding arrangements. The rapid growth of
international trade in Canada in the wake of NAFTA and, more generally, freer
trade throughout the world, have made improved competitiveness a crucial
objective for all governments in Canada. The creation of lasting jobs, the
improvement of our standard of living and our wealth and, ultimately, the
continuation and improvement of the social programs that we have developed over
the last 40 years depend, more than ever, on our ability as a society to meet
this challenge. Each government must address this challenge. But the
federal government currently has the most financial leeway while the provinces,
who are responsible for programs that are likely to contribute most to improved
competitiveness, in particular education, health and infrastructures, have the
least. In
this context, the Ministers of Finance of the provinces and territories invite
their federal counterpart to act on this balanced strategy to improve the
competitiveness of Canada’s economy that could be implemented in the next
federal budget. They stress the need for tax competitiveness; and the immediate
full restoration of Canada Health and Social Transfer funding (CHST) with an
appropriate escalator in concert with the removal of the ceiling on Equalization
payments. Therefore, the upcoming federal budget should focus on: ·
Reducing the tax burden and introduce significant personal income tax
reductions; ·
Designing those tax cuts in a way that respects the fiscal autonomy of
the provinces and territories and, above all, maintains their ability to finance
and improve social programs; ·
Restoring CHST cash funding to its 1994-95 level of $18.7 billion by
2000-01, with an appropriate escalator in concert with a strengthening of the
federal government’s commitment to Equalization by the removal of the ceiling
on Equalization payments. Finally, given the importance of maintaining and developing a strong
infrastructure base for a competitive economy, the federal government and the
provinces and territories should immediately undertake discussions on a new
infrastructure program with the objective of announcing the broad outlines of
this program in the upcoming federal budget. Appendix At their annual Conference last August, the Premiers and Territorial
Leaders asked their Ministers of Finance to work with their federal colleague to
examine infrastructure development options.
They also agreed on principles to guide these discussions: ·
Investments in infrastructure should be based on concrete strategic
criteria, including return on investment, prospects
for long-term economic growth and enhanced competitiveness. ·
Each provincial or territorial government must be able to select and
approve the appropriate projects that best build on their competitive strengths.
It must be consistent with provincial or territorial infrastructure priorities.
Provinces and territories would assume full management. ·
The approach must be flexible enough to address both hard infrastructure
needs (e.g. international gateways, urban transportation, highways), soft
infrastructure and strategic investments in telecommunications infrastructure
(e.g. environmental services, information technology, health and education
equipment, communications). ·
The approach must also be flexible enough to allow for the participation
of other sectors, including innovative private-public partnerships and, as
appropriate, for varying degrees of municipal participation determined by
provinces and territories. ·
Funding arrangements should be consistent with existing provincial fiscal
plans – the investments that provinces and territories have already made in
their regular budgets for infrastructure would be accounted for as part of their
contribution. ·
Federal funding must be allocated equitably among provinces and
territories.
[1]
Corporate Health Care Costs in Canada and the US.
Does Canada’s Medicare System make a Difference?
Conference Board of Canada. (March 1999) [2]
The
House of Commons Standing Committee on Productivity noted in a recent
report (June 1999) that education and human capital developement are
important in terms of improving Canada’s standard of living.
Improving
competitiveness by reinforcing social programs
Social Spending(1) and Federal Revenues
Sources:
Federal and provincial Budgets, 1999 Economic and Fiscal Update
(1)
Spending on education, health and social services.Full restoration and a plan to
escalate the CHST cash transfer
In this regard, they consider that the next federal budget should
include: Improving
competitiveness through the Equalization program
(in percentage)
Source: Federal Budgets, 1999 Economic and Fiscal UpdateImproving
competitiveness by investing in infrastructure
Conclusion
Principles
for a New Infrastructures Program