NEW ZEALAND ECONOMICS NEW ZEALAND GOVERNMENT BUDGET 2014 REVIEW

Transcription

1 ANZ RESEARCH NEW ZEALAND ECONOMICS NEW ZEALAND GOVERNMENT 15 May 214 IMPROVEMENT BRINGS GREATER CHOICES CONTRIBUTORS Cameron Bagrie Chief Economist Phone: Cameron.Bagrie@anz.com Carrick Lucas Strategist Phone: carrick.lucas@anz.com KEY POINTS The broad policy agenda from today s Budget hit all the right notes at the macro level. A return to surplus is now within sight and the Government remains focused on the same key priority areas, including managing finances, improving productivity, better public services, and rebuilding Christchurch. The fiscal numbers look good. A return to surplus continues to be pencilled in for 214/15 ($372m) and rising thereafter, although the projected surplus of 1.3 in 218 is marginal and not much of a buffer. Net core crown debt is forecast to fall to 2 by 22. While fiscal responsibility rhetoric is strong, an improving fiscal position and better economy have shifted the strategic focus of policy to managing an expanding economy and choices relating to future surpluses. The growth projections look reasonable, which give the fiscal projections a sense of realism. The fiscal stance remains restrictive to the tune of 2.3 over the next four years, supported by ongoing expenditure restraint. However, the stance is less restrictive than flagged in the Half-Year Update (3.4 over four years). This principally reflects the upping of the provisions for new initiatives in the 215 Budget and beyond. Prospective ACC levy reductions will add to stimulus. Less restrictive fiscal policy means the RBNZ will likely have to do more work (~25 bps). An improving fiscal position provides greater fiscal flexibility in regard to new initiatives and there are numerous sweeteners in the form of extending paid parental leave, a boost to the parental tax credits, and free GP visits for children under the age of 13 (up from 6 years of age and on top of the obligatory boosts to health and education to keep the wheels turning). The Crown s borrowing programme was raised by $3bn to $37bn over the projection period owing to a greater cash requirement in the out-years. NZDMO also announced plans to syndicate both an Apr-227 nominal bond and a new inflation-indexed bond in the second half of 214. The Budget hits all the usual high notes and we like the emphasis on building the economy s capacity; and the collection of small initiatives which we view as critical if the current expansion is to endure. Our only quibble is that small surpluses will do little to take pressure off the exchange rate. 214 Budget Economic and Fiscal Forecasts (HYEFU 213 forecasts in brackets) March Years 213/14 214/15 215/16 216/17 217/18 Real GDP (ann. ave. % chg.) 3. (2.7) 4. (3.6) 3. (2.7) 2.1 (2.) 2.1 (2.2) Nominal GDP (ann. ave. % chg.) 6.7 (6.5) 5.7 (4.9) 4.3 (5.2) 4.5 (4.) 3.7 (3.7) Current account deficit () -3.1 (-4.2) -4.4 (-5.5) -5.9 (-6.3) -6.2 (-6.5) -6.3 (-6.4) Unemployment rate (March qtr, %) 5.9 (5.8) 5.4 (5.6) 5.1 (5.4) 4.8 (5.2) 4.4 (4.7) CPI (ann. % chg.) 1.5 (1.4) 1.8 (2.4) 2.5 (2.4) 2.3 (2.3) 2. (2.2) June Years 213/14 214/15 215/16 216/17 217/18 OBEGAL (-1.).2 (.).5 (.7).9 (1.2) 1.3 (2.1) Operating Balance 1.3 (.7) 1.3 (1.3) 1.6 (1.9) 2. (2.4) 2.5 (3.3) Core Crown Residual Cash (-1.8) -1.5 (-1.5) -.2 (-.5).6 (.5) 1.2 (1.2) Net Core Crown Debt (26.3) 26.4 (26.5) 25.9 (25.8) 24.9 (24.4) 23.8 (22.3) Bond Programme (Gross) 8. (8.) 8. (7.) 7. (7.) 7. (6.) 7. (6.)

2 ANZ Data Review / 15 May 214 / 2 of 7 BUDGET 214 Today s Budget contained few surprises: The broad policy platform is the same. The numbers look solid. The fiscal stance remains tight (though not as tight), and hence is relevant for monetary policy. Winners there were a fair few. The spirit conveyed by microeconomic initiatives and their impact on productivity and ensuring the longevity of the current expansion looks encouraging. OVERARCHING PARAMETERS UNCHANGED It s business as usual in regard to the policy prescription. The priorities remain: Responsible fiscal management. Building a productive and competitive economy to sustain the economic upswing. Delivering better public services. Rebuilding Christchurch. It s all common sense stuff, with the Budget hitting all the usual high notes at the macroeconomic level: limits on new discretionary spending (although easing); a commitment to drive surpluses higher (once we achieve one in 214/15); and net debt to fall to 2 by 22. However, within this Budget one can see a clear tactical shift. The reaction function has changed slightly, moving more towards managing an expanding and growing economy and acting on the choices an improving fiscal position provides. Fiscal prudence and responsibility still dominate the rhetoric; society is not looking for big bang expansionist style fiscal policy. Yet a slightly larger bond programme, greater provisions for new initiatives in out-year Budgets (from $1bn to $1.5bn), and a projected surplus of only 1.3% of GDP by 218 signal a subtle change of stance. Cynics will view it as pre-election sweeteners and jumping the gun before the money is in the bank. Proponents will say it is merely acting on the choices an improving fiscal position provides and we can see examples of policy acting in a more interventionist manner, as opposed to waiting to be the ambulance at the bottom of the cliff. There seems to be a fair bit of confidence that structural changes across the government sector mean projected fiscal surpluses are baked in and more sustainable. We concur with structural changes giving more certainty around the fiscal position. And so we see a broader policy platform that involves some debt repayment (declining as a share of GDP at least), contained (but still-rising) spending, squirreling more money into the Super Fund, and paying for new capital investment. All at the same time as trying not to put pressure on monetary policy, while ensuring projected surpluses are sustainable. While such choices invariably involve trade-offs (and various groups will always seek the balance to be struck in a different manner), it s important to remember that having choices is better than not. A host of countries do not have the fiscal flexibility New Zealand has at present, enabling them to strike a balance between competing objectives. The Australian Budget was a case in point. WALKING THE WALK In terms of the numbers themselves: The Underlying Operating Balance (OBEGAL) is projected to return to surplus in 214/15, albeit at $372m, there is little room for error. Thereafter, annual surpluses are projected to lift towards $3.5bn (previously $5.6bn), or 1.3% of GDP in 218. Still, that s a remarkable turnaround from a 9.2 deficit in 211. However, projected improvement in surpluses to.2% to 1.3 from 214/15 to 217/18 are relatively tame, given the inherent volatility and uncertain nature of fiscal projections. All else equal one would hope to be building up a bigger fiscal war-chest amidst what is forecast to be a decent economic upswing over a number of years. FIGURE 1. UNDERLYING FISCAL BALANCE (OBEGAL) HYEFU 213 Budget 214 Core Crown expenses are forecast to drop below 3 by 216/17, a significant improvement from the 35 seen in 211.

3 ANZ Data Review / 15 May 214 / 3 of 7 Spending restraint is a key contributor to the overall fiscal consolidation effort. The allowance for new initiatives in upcoming Budgets has been upped from $1bn to $1.5bn from 215. That s still restrained compared to what we ve seen previously, but the foot is easing off the brake. FIGURE 2. CORE CROWN REVENUE VS EXPENDITURE Revenue Expenditure Net debt is projected to peak at 26.4% of GDP in 214/15 before falling to 2 in 22. With average net Government debt levels across OECD peers in excess of 7, that s a comparatively world-class position. However, other countries don t have New Zealand s poor external position (net international liabilities of 65) which puts the onus on the fiscal accounts to stay squeaky clean. FIGURE 3. NET CORE CROWN DEBT 35 programmes of $7-8bn are now flagged for each of the next four years. Bond Programme Bond Programme (Gross) Change from HYEFU / / / / / Cumulative The 214/15 bond programme increased by $1bn to $8bn, with the NZDMO flagging up to $3bn for inflation-indexed bond issuance. The NZDMO now plans to syndicate both an Apr-227 nominal bond and a new inflation-indexed bond in the second half of 214, subject to market conditions. Assuming syndication size of around $1.5-2.bn for each bond, we would expect regular inflation-indexed bond issuance to slow to around $15m per month in 214/15, (from $2m in H1 214); while regular monthly nominal issuance is likely to increase only slightly to around $3m. In terms of the bigger picture, the NZGS supply backdrop remains relatively light compared to recent years, supporting further gradual widening in swap spreads over the medium term. Today s Budget was market-friendly and received another big tick from at least one credit rating agency. FIGURE 4. NZ BOND PROGRAMMES (JUNE YEARS) 2 15 forecasts 3 25 NZDbn HYEFU 213 Budget 214 BOND PROGRAMME LIFTED SLIGHTLY NZDMO s borrowing programme was raised $3bn compared to December HYEFU forecasts, with gross bond issuance lifting to $37bn over the projection period. Annual bond Linkers Nominal Bonds THE ECONOMIC OUTLOOK IS SOLID The Budget forecasts showed a strong growth outlook, reflecting the multitude of demand side supports underpinning the expansion, including the Canterbury rebuild, the near-record terms of trade, strong net migration and low (but rising) interest rates. Countering this is the high NZD and (slightly less) restrictive fiscal settings.

4 ANZ Data Review / 15 May 214 / 4 of 7 Over the five years to March 218, real GDP growth is expected to average 2.8%, with a stronger outlook over 214 and 215. Domestic demand is the key driver of the growth outlook. Real private spending growth is forecast to accelerate to nearly 7% during the year ahead, supported by strong rising private consumption and investment spending. Despite a benign global environment and high NZD, pressures on domestically generated inflation will see the RBNZ continue to lift interest rates towards more neutral levels (Treasury put this at 4.8% for the 9-day rate), with the 9-day rate hitting 5.3% at the start of 218. Annual growth is then projected to ease over the latter part of the projections as impact of some of the positive influences on GDP growth moderates, including interest rates moving to a more neutral stance in response to emerging inflationary pressures. Given the domestic demand centricity of the expansion, a (modest) projected decline in the terms of trade and the impact of the high NZD, the current account deficit progressively widens throughout the projection period. Nevertheless, annual nominal GDP growth is expected to average close to 5% per annum over the projection period, supporting tax revenues. The Treasury assumes that potential output growth will expand at an average rate of 2.6% per year over the forecast period, slightly higher than in the HYEFU forecasts. Initially, a rising labour force (courtesy of strengthening net immigration) boosts productive capacity, but from the March 215 year onward, growth in the capital stock makes the largest factor contribution to increases in output. This is in a similar ball-park to our expectations. Treasury note a mix of upside and downside risks underpinning the economic outlook, including the size and pace of the Canterbury rebuild, the size and duration of the current upswing in net migration, the path of the terms of trade, the path and pass-through of the exchange rate and the saving behaviour of households. While the Treasury have assumed a moderate outlook for global growth, they acknowledge that due to a combination of high indebtedness in OECD countries, deflation concerns and risks of financial market crises in China and other emerging economies, the risk profile is tilted to the downside. We concur. less restrictive than flagged in the Half-Year Update of 3.4% over four years. This principally reflects the upping of the provisions for new initiatives in the Budgets for 215 and beyond from $1bn to $1.5bn. Prospective ACC levy reductions ($5m) a tax cut by stealth will add to stimulus. So while restrictive fiscal policy is broadly still working in tandem with monetary policy in that it is leaning against the upswing, it s less restrictive than it was, and this likely means more work for the RBNZ and the OCR. We put the slight change in the stance as being worth around 25 bps in terms of RBNZ rate hikes. FIGURE 5. FISCAL IMPULSE (JUNE YEARS) Expansionary Contractionary Budget 214 HYEFU WHO GETS WHAT? In terms of specific detail: Childcare extending paid parental leave from 14 to 18 weeks while loosening eligibility criteria. Raising the parental tax credit. Free GP visits and prescriptions for children aged under 13 from July 215 (currently only free for children under 6). Additional funding for early childhood education ($156m over 4 years). More funding for apprenticeships (6, places), operational funding for tuition subsidies in science, agriculture and health sciences, funding to establish three more Centres of Research Excellence (taking the total to 1), and tweaks to the R&D regime for innovation companies. THE FISCAL STANCE STILL RESTRICTIVE BUT LESS SO The fiscal stance remains restrictive to the tune of 2.3 over the next four years (215 to 218), supported by ongoing expenditure restraint and projected rising surpluses. However, the stance is Trade and Enterprise an additional $69m over four years. New health initiatives of $1.8bn over four years (including redeploying $413m of savings). That s needed to keep the wheels turning in that sector.

5 ANZ Data Review / 15 May 214 / 5 of 7 Defence an additional $535m over the next four years (including $1m in 214/15) to modernise and upgrade its capability. Education gets $858m over four years, including the $359m to recognise teacher excellence (that looks like a targeted performance pay initiative). Training $2m more for apprenticeships, and $3k cash grants for the unemployed to relocate to jobs in Christchurch. IRD $132m over five years to chase tax avoidance (which is expected to bring in an additional $3m in revenue). ACC on track to deliver further levy reductions of $48m in 215/16 (consultations are ongoing). Funding for a collection of intervention-style initiatives (supporting people coming off benefits, additional places in work-readiness programs etc). Temporary removal of duties and tariffs on building materials, expected to save $3,5 on the construction of a standard home. A further $1bn of commitments from the Future Fund (which is the mechanism asset sale proceeds are being recycled through) into health, education and key infrastructure such as rail. A continued strong commitment to Christchurch, with latest estimates suggesting the Government s contribution will total $15.4bn. THE SPIRIT With the economy navigating a barrage of cyclical and structural challenges and enjoying an economic expansion (beyond just an upswing), both the Government s broad fiscal parameters and how they tweak the microeconomic levers will be key factors shaping the durability and longevity of the economic expansion. avenue is to support higher domestic savings, with fiscal savings key. And this is where you typically need super-sized surpluses to make a difference a dynamic that s politically difficult to achieve, and one of which there is no sign of in this Budget. THE UPSHOT Modern day Budgets tend to be bland and dry affairs and this one was no different. It was another business-as-usual affair with few surprises and the numbers again market-friendly. However, we still view the policy agenda to be pretty constructive in the microeconomic arena. That s critical if the current economic expansion is to endure. The change in the fiscal stance (restrictive, but less so) will be noted by the RBNZ. All else equal this looks to be worth around an extra 25bps of tightening in the current cycle. New Zealand s fiscal credentials will continue to be well received by credit rating agencies and offshore investors alike, despite marginally less rosy fiscal numbers compared to six months ago. At the margin we d have liked to see the fiscal numbers looking better before the dividends start to be redeployed. However, in the overall scheme of things, that s splitting hairs. New Zealand is in the globally enviable position of being able to lift spending in priority areas, reduce the debt burden, undertake some intervention-style policies (avoiding ambulance at the bottom of the cliff responses), helping to grease the wheels of the economy by targeted policies that lift supply-side performance, and all at a time of dealing with the fiscal aftermath of a natural disaster. We like the general spirit of today s Budget with the broad fiscal parameters and policy settings healthy. We re not looking for silver bullets but take the collection of initiatives across an array of areas as encouraging. Steps such as removing (albeit temporarily) tariffs and duties on construction good imports provide very practical assistance at a time when construction costs are on the rise. One Achilles heel for the Government in this Budget is the export sector. While the Government can point to continued restrictive fiscal policy as playing a role in suppressing interest rates and taking pressure off the NZD, this is overly simplistic. Another

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