Evaluierung des Einsatzes von Fördermitteln im Rahmen der Gemeinschaftsaufgabe „Verbesserung der regionalen Wirtschaftsstruktur“ (GRW) in Thüringen für den Zeitraum 2011 – 2016
Matthias Brachert, Hans-Ulrich Brautzsch, Eva Dettmann, Alexander Giebler, Peter Haug, Gerhard Heimpold, Mirja Meyborg, Esther Schnabl, Lutz Schneider, Thomas Stahlecker, Mirko Titze, Andrea Zenker
IWH Online,
No. 1,
2018
Abstract
Die Investitionszuschüsse im Rahmen der Gemeinschaftsaufgabe „Verbesserung der regionalen Wirtschaftsstruktur“ (GRW) stellen nach wie vor das quantitativ bedeutendste Förderinstrument mit explizit regionaler Zielsetzung in Deutschland dar. Das Oberziel dieses Programms besteht in der Reduzierung regionaler Disparitäten. Es soll damit einen Beitrag zu dem im Grundgesetz Artikel 72(2) verankerten Ziel der Herstellung gleichwertiger Lebensverhältnisse im Bundesgebiet leisten. Auf der Mikroebene, d. h. der Ebene der Betriebe, zielt die GRW auf die Schaffung und Sicherung dauerhafter und hochwertiger Arbeitsplätze. Dadurch sollen – so das Ziel auf der Makroebene – strukturschwache Gebiete Anschluss an die allgemeine Wirtschaftsentwicklung in Deutschland halten und nicht dauerhaft zurückfallen.
Die Eckpunkte für den Einsatz dieses Programms legen der Bund und die Länder im GRW-Koordinierungsrahmen fest. Jedoch können die Länder weitere Eingrenzungen gegenüber diesen allgemeinen Regelungen vornehmen, um auf die regionalspezifischen Bedingungen vor Ort Rücksicht zu nehmen.
Mit dem Koalitionsvertrag für die 18. Legislaturperiode auf der Bundesebene wurde die Aufgabe einer Weiterentwicklung eines Systems der Förderung strukturschwacher Regionen festgelegt (vgl. CDU, CSU und SPD 2013). Die Weiterentwicklung des Fördersystems wird vor allem deshalb notwendig, weil sich die finanzpolitischen und beihilferechtlichen Rahmenbedingungen – insbesondere in den neuen Ländern – in naher Zukunft weiter verändern werden (Auslaufen der Sonderbedarfs-Bundesergänzungszuweisungen, Greifen der Schuldenbremse, Einschränkung der Fördermöglichkeiten durch das EU-Beihilferecht). Erste Überlegungen zur Anpassung des Fördersystems sehen im Kern eine reformierte GRW vor, die im Zusammenspiel mit wirtschaftsnahen Förderprogrammen (vornehmlich FuE- sowie KMU-Programme des Bundes) sowie nicht unmittelbar wirtschaftsnahen Förderprogrammen (bspw. Städtebauförderung) zum Einsatz kommen soll. Eine Empfehlung für die reformierte GRW lautet, die bisherigen Fördervoraussetzungen (insbesondere Primäreffekt, besondere Anstrengung, Begrenzung der Förderung pro Arbeitsplatz) auf den Prüfstand zu stellen und verstärkt Augenmerk auf Netzwerkbildung, Forschungs- und Innovationsförderung zu richten (vgl. GEFRA, RUFIS 2016).
In der jüngeren Vergangenheit ist das Bewusstsein bei den wirtschaftspolitischen Verantwortungsträgern dafür gewachsen, dass staatliche Eingriffe umfassenden Evaluationen unterzogen werden sollten (vgl. Brachert et al. 2015). Gegenstand ist die Beantwortung der Frage, ob ein Programm eine (kausale) Wirkung auf ex ante bestimmte ökonomische Zielvariablen entfaltet (Effektivität) und ob die Fördermittel tatsächlich in die beste Verwendung fließen (Effizienz). Das Programmmanagement der GRW nimmt diesbezüglich zweifelsohne eine Vorreiterrolle in Deutschland, ein, auch wenn viele Fragen noch nicht abschließend beantwortet sind (vgl. WissBeirat BMWi 2013 und 2015).
Von 1991-2016 setzte der Freistaat Thüringen GRW-Mittel im Umfang von ungefähr 9,5 Mrd. Euro ein. In den 1990er Jahren betrug das jährliche GRW-Volumen noch zwischen rund 300 und knapp 900 Mio. Euro. Seit Ende der 1990er Jahre – mit Ausnahme der Zeit der Wirtschafts- und Finanzkrise zwischen 2008 und 2013 – ist der Umfang der GRW-Mittel kontinuierlich abgeschmolzen. Im Jahr 2016 wurden „nur“ noch 157 Mio. Euro an GRW-Mitteln im Freistaat Thüringen eingesetzt. Dies bedeutet, dass die Höhe der Anreize, die heute mit der GRW gesetzt werden können, geringer ist.
Nach einem bedeutenden Anstieg der wirtschaftlichen Leistungsfähigkeit im Gefolge der Wiederherstellung der Deutschen Einheit ist der Aufholprozess Ostdeutschlands seit Mitte der 1990er Jahre ins Stocken geraten. Neuere Untersuchungen zur wirtschaftlichen Entwicklung in den neuen Ländern weisen darauf hin, dass der Aufbau eines modernen Kapitalstocks (welcher im Fokus der GRW steht) und die Reallokation von Ressourcen von weniger produktiven Bereichen in Bereiche mit höherer Produktivität – die den Aufholprozess in der ersten Phase maßgeblich getrieben haben – für den weiteren Angleichungsprozess nur wenig zusätzliche Impulse setzen können. Dagegen spielen in der nächsten Phase des Aufholprozesses Humankapital und Innovationen die entscheidende Rolle (vgl. Brautzsch et al. 2016).
Vor diesem Hintergrund ist die ausgeschriebene Studie angelegt. Sie zielt darauf ab, den Einsatz der GRW-Mittel ex post vor dem Hintergrund der wirtschaftlichen Entwicklung und der Zielsetzungen der GRW und der Förderpolitik des Thüringer Ministeriums für Wirtschaft, Wissenschaft und Digitale Gesellschaft (TMWWDG) zu analysieren, und konkrete Empfehlungen für die Weiterentwicklung und künftige Ausrichtung der Thüringer GRW-Förderung und der sie begleitenden Programme Thüringen-Invest sowie Thüringen-Dynamik zu geben. Die nächste bedeutende Änderung wird die Anpassung der Förderhöchstsätze der prä-definierten C-Fördergebiete an diejenigen der nicht prä-definierten (vornehmlich in Westdeutschland beheimateten) C-Fördergebiete sein (Absenkung der Förderhöchstsätze um 5 Prozentpunkte; vgl. Leitlinien für staatliche Beihilfen mit regionaler Zielsetzung 2014 – 2020 – Regionalleitlinien [RLL] [ABl. C 209 vom 23.7.2013, S. 1]).
Read article
When Arm’s Length is too Far: Relationship Banking over the Credit Cycle
Thorsten Beck, Hans Degryse, Ralph De Haas, Neeltje van Horen
Journal of Financial Economics,
No. 1,
2018
Abstract
We conduct face-to-face interviews with bank CEOs to classify 397 banks across 21 countries as either relationship or transaction lenders. We then use the geographic coordinates of these banks’ branches and of 14,100 businesses to analyze how the lending techniques of banks in the vicinity of firms are related to credit constraints at two contrasting points of the credit cycle. We find that while relationship lending is not associated with credit constraints during a credit boom, it alleviates such constraints during a downturn. This positive role of relationship lending is stronger for small and opaque firms and in regions with a more severe economic downturn. Moreover, our evidence suggests that relationship lending mitigates the impact of a downturn on firm growth and does not constitute evergreening of loans.
Read article
Statistical presentation of international trade in the course of German unification
Udo Ludwig, Klaus Voy
Klaus Voy (Ed.): Außenhandel und Globalisierung in gesamtwirtschaftlicher Sicht. Marburg: Metropolis,
2018
Abstract
How did the German unification influence the development and the statistical presentation of he contemporary trade of the eastern and western part of Germany? The parallel presentation oft he regional gross domestic products and their demand components is he only way, to describe adequate the flow of goods and between both the two parts of the German economy as well as with the rest of the world.
Read article
Economic Transition in Unified Germany and Implications for Korea
Hyung-Gon Jeong, Gerhard Heimpold
H.-G. Jeong and G. Heimpold (eds.): Economic Transition in Unified Germany and Implications for Korea. Policy References 17-13. Sejong: Korea Institute for International Economic Policy,
2017
Abstract
The reunification of Germany, which marked the end of the Cold War in the 20th century, is regarded as one of the most exemplary cases of social integration in human history. Nearly three decades after the German reunification, the economic and social shocks that occurred at the beginning of the reunification process have largely been resolved. Moreover, the unified Germany has grown into one of the most advanced economies in the world.
The unification process that Germany underwent may not necessarily be the way that the Republic of Korea would choose. However, the economic and social exchanges between East and West Germany prior to unification, and the cooperation in a myriad of policies based on these exchanges, served as the crucial foundation for unification. The case of Germany will surely help us find a better way for the re-unification of the Korean Peninsula.
In this context, this is the first edition of a joint research which provides diverse insights on social and economic issues during the process of unification. It consists of nine chapters whose main topics include policies on macroeconomic stabilization, the privatization of state-owned enterprises in East Germany, labor policies and the migration of labor, integration of the social safety nets of the North and South, and securing finances for reunification. To start with, the first part covers macroeconomic stabilization measures, which include policies implemented by the federal government of Germany to overcome macroeconomic shocks directly after the reunification. There was a temporary setback in the economy at the initial phase of reunification as the investment per GDP went down and the level of fiscal debt escalated, reverting to its original trend prior to the reunification. While it appears the momentum for growth was compromised by reunification from the perspective of growth rate of real GDP, this state did not last long and benefits have outpaced the costs since 2000.
In the section which examines the privatization of state-owned enterprises in East Germany, an analysis was conducted on the modernization of industrial infrastructure of East German firms. There was a surge in investment in East German area at the beginning stages but this was focused on a specific group of firms. Most of the firms were privatized through unofficial channels, with a third of these conducted in a management buy-out (MBO) process that was highly effective. Further analysis of a firm called Jenoptik, which was successfully bailed out, is incorporated as to draw implications of its accomplishments.
In the section on migration, we examine how the gap between the unemployment rates in the West and East have narrowed as the population flow shifted from the West to East. Consequently, there was no significant deviation in terms of the Gross Regional Domestic Product (GRDP) per capita in each state of East Germany. However, as the labor market stabilized in East Germany and population flows have weakened, the deviation will become larger. Meanwhile, if we make a prediction about the movement of population between the North and the South, which show a remarkable difference in their economic circumstances, a radical reunification process such as Germany’s case would force 7% of the population of the North to move towards the South. Upon reunification, the estimated unemployment rate in North Korea would remain at least 30% for the time being. In order to reduce the initial unemployment rate, it is crucial to design a program that trains the unemployed and to build a system that predicts changes in labor demand.
It seems nearly impossible to apply the social safety nets of the South to the North, as there is a systemic difference in ideologies. Taking steps toward integration would be the most suitable option in the case of the Koreas. We propose to build a sound groundwork for stabilizing the interest rates and exchange rates, maintain stable fiscal policies, raise momentum for economic growth and make sure people understand the means required to financially support the North in order to reduce the gap between the two.
This book was jointly organized and edited by Dr. Hyung-gon Jeong of the Korea Institute for International Economic Policy (KIEP) and Dr. Gerhard Heimpold of the Halle Institute for Economic Research (IWH). We believe that this report, which examines numerous social and economic agendas that emerged during the reunification of Germany, will provide truly important reference for both Koreas. It is also our view that it will serve as a stepping-stone to establish policies in regard to South-North exchanges across numerous sectors prior to discussions of reunification. KIEP will continue to work with IWH and contribute its expertise to the establishment of grounds for unification policies.
Read article
Who Benefits from GRW? Heterogeneous Employment Effects of Investment Subsidies in Saxony Anhalt
Eva Dettmann, Mirko Titze, Antje Weyh
IWH Discussion Papers,
No. 27,
2017
Abstract
The paper estimates the plant level employment effects of investment subsidies in one of the most strongly subsidized German Federal States. We analyze the treated plants as a whole, as well as the influence of heterogeneity in plant characteristics and the economic environment. Modifying the standard matching and difference-in-difference approach, we develop a new procedure that is particularly useful for the evaluation of funding programs with individual treatment phases within the funding period. Our data base combines treatment, employment and regional information from different sources. So, we can relate the absolute effects to the amount of the subsidy paid. The results suggest that investment subsidies have a positive influence on the employment development in absolute and standardized figures – with considerable effect heterogeneity.
Read article
19.12.2017 • 40/2017
The medium-term economic development in Germany from 2017 to 2022 and opportunities for fiscal policies of a new federal government
Due to the cyclical upswing in Germany, in case of unaltered legislation, the general government would achieve considerable budget surpluses in the years ahead. As a consequence, there is large fiscal scope for a new federal government. With the fiscal policy simulation model of the Halle Institute for Economic Research (IWH) – Member of the Leibniz Association, the macroeconomic effects of various fiscal policy measures are analysed. The results show that additional government expenditures, like the expansion of social benefits, do have a stronger effect on GDP than revenue cuts, like for instance tax reliefs. „Due to the already high capacity utilisation, revenue cuts seem to be advantageous from a business cycle perspective. Moreover, a reduction of the high taxes and charges on labour would, in contrast to an expansion of social benefits, have a positive effect on potential output“, says Oliver Holtemöller, head of the Department of Macroeconomics and IWH vice president.
Oliver Holtemöller
Read press release
Produktivitätsunterschiede zwischen West- und Ostdeutschland und mögliche Erklärungsfaktoren. Ergebnisse aus dem IAB-Betriebspanel 2016
Steffen Müller, Eva Dettmann, Daniel Fackler, Georg Neuschäffer, Viktor Slavtchev, Ute Leber, Barbara Schwengler
IAB-Forschungsbericht 16/2017,
2017
Abstract
After several years of prosperity, the economic situation of German establishments improved further in 2016. Though the productivity in East German establishments converged slightly to the West German level, a significant productivity gap between both parts of Germany still remains. Differences in the economic structure can only explain a small part of this persistent gap: a Blinder-Oaxaca decomposition suggests that the different sector composition, lower exports and lower capital intensity of East German establishments explain only about one-fifth of the backlog. The observed positive economic development is associated with a further increase in firm profitability and total employment in the establishments in both parts of Germany. It is reflected also in a further increase in the demand for skilled personnel. Even though the majority of the demand could be met in 2016, one-third of all offered jobs remained vacant. As in the past, especially establishments in construction and business services as well as very small establishments, particularly in East Germany, faced considerable recruitment problems. The occupational skill requirements increased slightly over time. The proportion of jobs for skilled workers is on average higher in East German establishments than in West Germany, suggesting a higher formal qualification level of employees in East Germany. Looking at the personnel structure, a significant increase in the share of atypical employment, particularly part-time jobs and marginal employment, over the last years become visible. The participation of establishments in vocational training remains relatively stable: about half of the enterprises that are authorized to provide vocational training do actually train apprentices. However, the corresponding fraction in East Germany is significantly lower since the economic crisis. In contrast, the share of vacant apprenticeship positions there is much higher than in West German establishments, pointing to major problems in finding suitable applicants. The share of employees participating in further training is about one third for several years. As in the past workers in low-skilled occupations participate only about half as often in training as employees in qualified jobs.
Read article
The Macroeconomic Development of the Soviet Occupied Zone/GDR (1949 until 1989) – a Balance
Udo Ludwig
Günther Heydemann, Karl-Heinz Paqué (Hrsg.): Planwirtschaft – Privatisierung – Marktwirtschaft. Wirtschaftsordnung und -entwicklung in der SBZ/DDR und den neuen Bundesländern 1945 - 1994. Vandenhoeck & Ruprecht,
2017
Abstract
Applying the growth accounting model the impact of labor and capital inputs as well as of the technological progress on GDP growth in different historical periods oft Eastern Germany is estimated. The main finding is the failure of the central planning model to modernize the economy. The total factor productivity dominated the economic growth only during the economic reforms in the second halve of the 60ies.
Read article
14.12.2017 • 39/2017
Cyclical upswing in Germany and in the world
At the turn of the year, the cyclical upswing in Germany continues. Gross domestic product is expected to increase by 2.2% in 2017, and because this year has seen significantly fewer working days than before, the rate of change amounts, adjusted for calendar effects, to even 2.5%. “The upswing is broad-based”, says Oliver Holtemöller, head of the Department Macroeconomics and IWH vice president. “For quite a long time now, significant increases in employment have been driving private incomes, consumption and housing construction. The latter was, in addition, stimulated by low interest rates.” Currently, German exports are benefiting from the vivid international economy. Not least since monetary policy in the euro area remains expansionary for the time being, we expect the upturn to continue in 2018 and production to increase again by 2.2%. Consumer price inflation is, with 1.7%, still moderate in both 2017 and 2018. Although domestic price pressures are on the rise, the effects of the energy price increase in 2017 expire in 2018, and the appreciation of the euro in the summer of 2017 will dampen price dynamics.
Oliver Holtemöller
Read press release
R&D Collaborations and the Role of Proximity
Philipp Marek, Mirko Titze, Clemens Fuhrmeister, Ulrich Blum
Regional Studies,
No. 12,
2017
Abstract
R&D collaborations and the role of proximity. Regional Studies. This paper explores the impact of proximity measures on knowledge exchange measured by granted research and development (R&D) collaboration projects in German NUTS-3 regions. The results are obtained from a spatial interaction model including eigenvector spatial filters. Not only geographical but also other forms of proximity (technological, organizational and institutional) have a significant influence on the emergence of collaborations. Furthermore, the results suggest interdependences between proximity measures. Nevertheless, the analysis does not show that other forms of proximity may compensate for missing geographical proximity. The results indicate that (subsidized) collaborative innovation activities tend to cluster.
Read article