Is a Centralisation of Local Governmental Structures an Appropriate Way to Ensure an Efficient Provision of Local Public Services? Findings from Case Studies in the State of Saxony-Anhalt
Gerhard Heimpold, Martin T. W. Rosenfeld
Wirtschaft im Wandel,
No. 1,
2008
Abstract
Choosing the appropriate organisational model for local government (i. e. centralised vs. federal model) forms an essential challenge for local communities. Against the background of Fiscal Federalism, a trade-off between the two models mentioned can be expected: Though the centralised model may bring up economies of scale and scope, the federal form of local government may have advantages, too, for instance regarding the extent of civil participation. The article has the intention to answer the question how the degree of centralisation/decentralisation of local governmental organisation affects the provision of services of public interest. The article is based on case studies conducted in ten municipalities located in the State of Saxony-Anhalt, Germany. The government of Saxony-Anhalt intends to implement a reform project targeted at the modernisation of local governmental organisation. The basic reform idea is to transform the local governmental structures from a situation (at the beginning of 2008) where a co-existence of centralised and federally organised municipalities is given towards a future situation where the centralised model should be dominating. In line with the expectation derived from theory, the empirical findings do not draw a picture, which is unequivocally in favour either of the centralised or of the federal model. However, the reform of modernisation of local governmental organisation should remain on the agenda, especially due to a shrinking population in the rural parts of Saxony-Anhalt. This could support the state government’s plans of a more centralized organisation of local government. But this would mean to give up the advantages of the existing federal model of local government. Therefore, in addition to the centralised model favoured by the state government, politicians in Saxony-Anhalt should look for the possibility of an alternative “third” model, which tries to combine the advantages of economies of scale with a greater degree of civil participation.
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Reform of Local Municipal Structures: Centralization not only Implicates Advantages
Peter Haug, Claus Michelsen
Wirtschaft im Wandel,
No. 11,
2007
Abstract
The question whether centralized or decentralized municipal structures are more efficient has been discussed, not only in Germany, for a long time primarily under aspects of law and administrative sciences. In this article, we use an economic approach instead. The prevailing theories on interjurisdictional competition are not conclusive about the cost and welfare effects of centralization. Therefore, using the example of Saxony-Anhalt we investigate empirically if there are any significant differences in expenses or personnel between more centralized municipal governance forms (“Einheitsgemeinden”) or rather decentralized forms (“Verwaltungsgemeinschaften”). Our cross-section analysis for selected municipal activities reveals that both types are very similar in their cost and manning structures. Significant differences can be explained rather by different population densities than by the organizational structure. Considering these results we do not recommend a forced amalgamation of the municipalities in Saxony-Anhalt. Especially, if frustration cost or the political transaction cost, which both rise with centralization, are taken into account.
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Health reform: Increase of gains instead of structural reforms
Ingmar Kumpmann
Wirtschaft im Wandel,
No. 8,
2006
Abstract
Die Regierungskoalition hat die Eckpunkte für eine neue Gesundheitsreform vorgelegt. Die wichtigsten Maßnahmen sind die Erhöhung der Krankenkassenbeiträge um ca. 0,5 Prozentpunkte, die Erhöhung der Steuerzuschüsse für die Krankenkassen, die Verteilung der Beiträge und Steuerzuschüsse auf die Krankenkassen durch einen Gesundheitsfonds und die Schaffung der Möglichkeit für die Krankenkassen, daneben noch Zusatzbeiträge zu erheben. Es dominieren somit Maßnahmen zur Erhöhung der Einnahmen. Die enge Bindung der Beiträge an die Beschäftigung von Arbeitskräften wird nicht überwunden. Zugleich wird durch die Zusatzbeiträge ein erster Schritt zur Einführung der Kopfpauschale getan. Denn die Erhebungsform der Zusatzbeiträge ist den Krankenkassen zwar freigestellt, im Wettbewerb dürfte sich aber die Kopfpauschale gegenüber einkommensabhängigen Beiträgen durchsetzen. Sollte die Bedeutung dieser Zusatzbeiträge und damit der Kopfpauschale langfristig zunehmen, hätte dies für das System weitreichende Konsequenzen. Eine Einbeziehung der Zusatzbeiträge in den Risikostrukturausgleich der Krankenkassen und steuerfinanzierte Ausgleichszahlungen für Geringverdiener müßten dann konsequenterweise zusätzlich in Betracht gezogen werden. Es fehlen weitgehend Schritte zur Steigerung der Effizienz des Gesundheitssystems, etwa durch Qualitätsverbesserung oder Kostendämpfung. Somit bleibt die Reform insgesamt unzureichend, um strukturelle Probleme des deutschen Gesundheitssystems zu lösen.
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Database on competition law enactment in developing countries, the budget and staff of the relevant competition agency, and other structural (economic and otherwise) characteristics. Forschungsbericht innerhalb des EU-Projektes: Competition Policy Foundations for Trade Reform, Regulatory Reform, and Sustainable Development, 2005
Johannes Stephan, Franz Kronthaler
One-off Publications,
No. 4,
2005
Abstract
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Fiscal economy potentials of a county structure reform in Saxony-Anhalt
Simone Scharfe
Wirtschaft im Wandel,
No. 5,
2006
Abstract
In view of the foreseeable demographic and finance-political developments the public house holds of Eastern Germany are under considerable strain to consolidate. This applies particularly to Saxony-Anhalt and there especially to local authorities. In 2003 the municipal expenses level (running material expenses and personnel expenses) of counties and communities in Saxony-Anhalt amounted 1,015 Euro per inhabitant and was clearly higher than the other East German states. Beyond the means of economisation through the efficient application of public funds, considerations are given to the potentials of country structure reforms. In the last legislative period, the CDU/FDP government already established the amalgamation of 24 counties to eleven new ones with the bill of 11.11.2005. The SPD - as an oppositional party at that time - submitted a proposal for an even further-reaching structural change with a concentration to five counties. This article comprises an estimation of the fiscal economisation potentials of both versions. In the first step, the (long term accessible) county expense levels of Saxony-Anhalt within the scope of the existing structure of a county is determined with the help of a Benchmarkanalysis. These results are then compared with expected expense levels of a reformed county structure which leads to the saving effect of the respective county reform. In the result of the analysis it appears that the suggestion of the SPD to the county structure reform allows to expect clearly higher saving effects than the suggestion of the former CDU/FDP government, a strong meaning of the already enforced community administrative reform is imputable.
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Determinants of employment - the macroeconomic view
Christian Dreger, Heinz P. Galler, Ulrich (eds) Walwai
Schriften des IWH,
No. 22,
2005
Abstract
The weak performance of the German labour market over the past years has led to a significant unemployment problem. Currently, on average 4.5 mio. people are without a job contract, and a large part of them are long-term unemployed. A longer period of unemployment reduces their employability and aggravates the problem of social exclusion.
The factors driving the evolution of employment have been recently discussed on the workshop Determinanten der Beschäftigung – die makroökonomische Sicht organized jointly by the IAB, Nuremberg, and the IWH, Halle. The present volume contains the papers and proceedings to the policy oriented workshop held in November 2004, 15-16th. The main focus of the contributions is twofold. First, macroeconomic conditions to stimulate output and employment are considered. Second, the impacts of the increasing tax wedge between labour costs and the take home pay are emphasized. In particular, the role of the contributions to the social security system is investigated.
In his introductory address, Ulrich Walwei (IAB) links the unemployment experience to the modest path of economic growth in Germany. In addition, the low employment intensity of GDP growth and the temporary standstill of the convergence process of the East German economy have contributed to the weak labour market performance. In his analysis, Gebhard Flaig (ifo Institute, München) stresses the importance of relative factor price developments. A higher rate of wage growth leads to a decrease of the employment intensity of production, and correspondingly to an increase of the threshold of employment. Christian Dreger (IWH) discusses the relevance of labour market institutions like employment protection legislation and the structure of the wage bargaining process on the labour market outcome. Compared to the current setting, policies should try to introduce more flexibility in labour markets to improve the employment record. The impact of interest rate shocks on production is examined by the paper of Boris Hofmann (Deutsche Bundesbank, Frankfurt). According to the empirical evidence, monetary policy cannot explain the modest economic performance in Germany. György Barabas and Roland Döhrn (RWI Essen) have simulated the effects of a world trade shock on output and employment. The relationships have been fairly stable over the past years, even in light of the increasing globalization. Income and employment effects of the German tax reform in 2000 are discussed by Peter Haan and Viktor Steiner (DIW Berlin). On the base of a microsimulation model, household gains are determined. Also, a positive relationship between wages and labour supply can be established. Michael Feil und Gerd Zika (IAB) have examined the employment effects of a reduction of the contribution rates to the social security system. To obtain robust results, the analysis is done under alternative financing scenarios and with different macroeconometric models. The impacts of allowances of social security contributions on the incentives to work are discussed by Wolfgang Meister and Wolfgang Ochel (ifo München). According to their study, willingness to work is expected to increase especially at the lower end of the income distribution. The implied loss of contributions could be financed by higher taxes.
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The coalition treaty from a fiscal point of view
Kristina vanDeuverden
Wirtschaft im Wandel,
No. 12,
2005
Abstract
After weeks of negotiations the coalition finally agreed on the conditions for their political work. Not surprisingly, the coalition agreement is complex and intransparent – with a multitude of single measures far away from a precise definition. Quantifying the programme and estimating resulting cash flows is currently difficult; official calculations are – if at all – only partly available. Anyhow, the contract will form the basis for economic policy during the next four years; therefore its evaluation by now is indispensable. The thin red line of the agreement – not astonishingly when considering the precarious financial situation of the public sector – is consolidation. However, more than 80% of the consolidation volume results from the revenue side. Though one third of this is due to the cutback of tax exemptions, the lion’s share comes from raising tax rates, mainly the VAT standard rate. In contrast, cutting back public expenditure is minor and the agreement clearly comes short of the Koch/Steinbrück proposal; even new tax reliefs are created. The consolidation is almost completely borne by private households. Enterprises as a whole are barely hit. However, they have to wait until 2008 for a reform of company taxation – one of the most pressing problems in this legislative period. To reduce the companies tax burden until the reform starts the conditions for tax depreciation are temporarily relaxed. Anyway, from an international point of view the statutory tax rate is an important signal to enterprises deciding where to invest. Lowering effective tax rates by changing depreciation conditions is intransparent and, thus, will be less effective. Furthermore savings within the public sector are planned to accomplish consolidation; 10 billion Euro should result from efficiency gains and reduced expenditure. Consolidation measures mainly focus on the budget of the federal government. However, Länder and communities will participate in the additional tax revenues. In contrast, social securities will loose – and therefore also the share of employment that is subject to social insurance contribution. Particularly the unemployment insurance will be burdened by the decrease of its premium rate. Besides, the federal government will reduce its grants to the pension funds and most notably the health system. The contract is dominated by fiscal constraints. Cyclical requirements are considered only cursory and pressing structural reforms are put off. The reforms of company’s taxation, of fiscal federalism, of the health system as well as a proceeding reform of the labour market are only proposed. How and when measures in these fields are realised will determine whether fiscal policy can set a new course.
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Financial policy dominated by consolidation
Kristina vanDeuverden
Wirtschaft im Wandel,
No. 10,
2002
Abstract
Submitting the Stability and Growth Pact European member states committed themselves to reduce their budget deficits. In spring this year the German fiscal position worsened more and more and it became obvious that the deficit target would – again – be missed. Despite the worsened starting point Germany affirmed to follow its original stability programme and to attain a budget “close to balance” by the year 2004. Thus, consolidation will have to be strengthened and the scope for fiscal policy narrows down.
If current fiscal policy is not sustainable, the necessity of consolidation is obvious. However, the mode of consolidation is controversial. The Stability and Growth Pact focuses on converging budget deficits close to balance. For this, short-term oriented consolidation dominates the more medium and long-term oriented aspects of fiscal policy. Generating economic conditions by fiscal policy is at least restricted, maybe temporarily impossible – and shortening the consolidation period increases its costs.
A forecast of the government’s financial development in the years 2002 to 2006 shows clearly that the restructuring of revenues and expenditure will show no progress. In particular, the lack of structural reforms will burden Germany’s fiscal situation in the medium-term oriented consolidation period. However: the political self-commitment this spring leaves no scope for alternatives, but to enforce the consolidation. Despite some efforts, the projection concludes that by the year 2004 the budget will show a deficit.
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Institution Building for Regional Policy in Central and Eastern European Countries – Ready for Accession to the EU?
Gerhard Heimpold
Wirtschaft im Wandel,
No. 6,
2002
Abstract
The contribution investigates the state of institution building for regional policy purposes in Poland, the Czech Republic and Hungary - candidate countries, which are preparing to become EU member states. In comparison with the situation at the beginning of the 1990s, when regional policy had only little importance in these countries, some progress has been achieved in the field of institution building, primarily at national level. A lot, however, still has to be done to complete this institution building: adaptation of programmes to the requirements of the EU regulations set for structural funds, designation of the management authorities and paying authorities, better coordination between the various central state institutions involved in regional policy, inclusion of regions into the national programming process. The competencies of these latter in the sphere of regional policy, which should be strengthened in the course of administrative reform in all the countries investigated, have not gained a foothold yet. In the accession states there is a need to clarify how the regions could be involved in the process of elaboration and realization of regional policy programmes.
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Germany: Cyclical Improvement not Until the End of the Year
Wirtschaft im Wandel,
No. 12,
2001
Abstract
During the second quarter of 2001 German overall production stagnated. Weak global development muddied the economic prospects of firms and prevented them from rising their output and their investment activities. In 2001 gross national product will only increase by 1%; the number of unemployed will be higher than expected. Nevertheless, we advise against an increase in public expenditure that aims at stimulating the economy. Anyhow, growing public deficits, caused by cyclical movements, should be accepted. In order to increase employment labour market reforms become more urgent.
In East Germany, currently even a decline in gross national product cannot be excluded. After the first period of restructuring, which has been accompanied by structural problems, cyclical movements become more important. In addition, economic stagnation burdens labour markets. Nonetheless trying to stimulate the East German economy by government spending programmes does not seem to be a viable strategy. From the cyclical point of view they are not very efficient and concerning structural problems they are no solution.
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