7/1/2012: Irish Exchequer Results 2011 - Capital v Current Spending Trends

In the previous posts we considered Exchequer results for 2011 for tax receipts and headline expenditure items. In this post we look at the capital and current spending composition breakdown for total spending.

One core assertion that was made in the previous posts is that capital spending carried the main load of Exchequer spending adjustments in 2011. Overall, year on year, total net cumulative voted spending by the Irish state declined 1.6% or €721 million. At the same time, current expenditure went up by 2.2% or €903 million. Capital expenditure dropped 27.4% year on year in 2011 or €1,623 million.

Table below highlights the yearly changes over the crisis period:

The table above clearly shows that while during the crisis Net Voted Current Spending went up by €663 million, capital spending has declined by €4,265 mln on aggregate. The table also shows that despite all the austerity discourse, our Net Current expenditure was rising in 2010 and 2011, while our capital expenditure was declining to compensate for these increases.

In addition, the table highlights the trend that shows current expenditure rising at accelerating rate in 2010 and 2011 and capital expenditure falling at accelerating rate in 2011 relative to 2010.

If capital spending by the state constitutes either a 'Keynesian' stimulus (as claimed by the Governments over the years) or an investment in future productive capacity of our economy (as also claimed by the Governments in the past), we are now into a third consecutive year of bleeding the economy dry.

And the dynamics are best illustrated by referencing to the longer time horizons:

So current expenditure share of total spending by the Government now stands at 90.6%, up from 2010 level of 87.3% and 1998-2002 average share of 82.3%. On the other hand, capital investment share of total Government spending has dropped from 21.7% average for 1998-2002 period to 21.0% in 2008 and to 14.6% in 2010. In 2011 this share declined to below 10.4%.

 Between 2000 and 2010, Irish State invested in new capital stock some €66.26 billion of funds. Assuming 8% combined amortization and depreciation on this stock implies the need for continued gross investment of ca €5.3 billion annually. This means that 2011 Net Capital Spending fell some €1.01 billion short of covering the depletion of the state-financed capital stock.

The above, of course, is a rather crude calculation, since amortization and depreciation are at least in part covered from the current spending and since we use net voted capital spending figure for the capital stock measurements, but it does clearly suggest that current rates of capital investment cannot be sustained in the long term. And hence, much of the savings that have driven our Exchequer deficit improvements to-date are not sustainable either.

7/1/2012: Irish Exchequer Results 2011 - Expenditure

In the previous post I looked at the tax revenues side of the Exchequer figures for 2011. The core conclusions emerging from that analysis was that:

Irish Exchequer tax receipts did not perform well in 2011 compared to both 2010 and the target, with most of the improvement (some 80%) accounted for by reclassification of the Health Levy as tax revenue and addition of the temporary, extra-Budget 2011 Pensions Levy.

Irish Exchequer tax revenues for 2011 cannot be interpreted as being indicative of any serious improvement. Factoring in Pensions Levy and delayed receipts (Corporation Tax receipts for December carried over into 2012), overall Exchequer revenue fell 3.1% short of the target set in Budget 2011, not 2.5% claimed by the Department of Finance.

The above shortfall amounts to 0.66% of the expected 2011 GDP and 0.81% of our expected GNP and comes after significant increases in taxation burden passed in the Budget 2011, suggesting that the economy’s capacity to generate tax revenues based on the current structure of taxation is exhausted.

Subsequent posts on the topic of Exchequer balance will focus on overall balance, capital spending dynamics and relative distribution of tax burdens. This post focuses on the expenditure side of the Exchequer balance.

In general, there are good reasons as to why discussion of the expenditure side of the Exchequer balance is a largely useless exercise, rendered such by:

-       Constant re-alignment and renaming of departments, and

-        Changes in the departmental revenues (as in the case with the Health Levy reclassification) impacting the Net Voted Expenditure on Health

Here’s a good post on the above caveats from Dr Seamus Coffey which is worth a read.

So let’s consider some of the higher level figures.

Overall Net Voted Expenditure for 2011 came in at €45.711 billion, or €723 million (-1.56%) below 2010 levels and with a savings of €3.602 billion (-7.3%) on 2008. The target for 2011 expenditure was set at €46.022 billion and the end outrun implies that the Government has under-spent the target by €311 million. Note: I am referencing the original Budget 2011 target, as referenced, for example, in End-June 2011 - Analysis of Net Voted Expenditure. The Department for Finance reference figure for the annual 2011 target is €46.151 billion or €129 million ahead of the original estimate. This discrepancy is reflected in part in the capital carryover figures for 2010-2011 and 2011-2012.

Year on year, 2011 marks the third year of declining cuts. In 2009 yoy spending fell €2.150 billion, in 2010 it declined by €0.730 billion and in 2011 the drop was €0.723 billion. In proportional terms, expenditure declined 4.56% in 2009, 1.57% in 2010 and 1.58% in 2011. Cumulated net expenditure ‘savings’ since 2008 are now standing at a miserly €3.602 billion. Given that over the same period we accumulated €81.017 billion of deficits clearly shows the inadequate extent of cost reductions in the public services. Whichever way you spin it, to cover just ½ of already accumulated deficits out of cost savings achieved so far would take decades, and that before we factor in interest payments and the fact that much of the ‘savings’ delivered to-date comes out of temporary cuts to capital spending. More on this in the forthcoming analysis of capital and current spending.

Now, since we cannot clearly de-alienate actual spending, let us at the very least consider the spending priorities. These have changed over the years and changed in the direction that, while inevitable in the current crisis, is worrisome nonetheless.

Please keep in mind that although I did try to adjust as much as possible for changes in departments compositions, the data below is not fully reflective of these. Nonetheless, it does present some interesting changes in the overall spending dynamics.

As shown above,

-       Agriculture, Food and the Marine net voted spending constituted 3.36% of the total spending in 2008. This now has fallen to 2.28%.

-       Tourism, Culture and Sport accounted for 1.43% of the total spending in 2008 and is now down to 0.60%.

-       Communications, Energy and Natural Resources share actually rose from 0.54% in 2008 to 0.55% in 2011.

-       Defence saw a relatively shallow decline from 2.16% in 2008 to 1.93% in 2011.

-       Education and Skills – the third highest spending department in 2008 and 2011 – remained relatively static with 18.31% of total spending in 2008 and 18.07% in 2011.

-       Jobs, Enterprise and Innovation share of total spending fell from 2.94% in 2008 to 1.73% in 2011.

-       Environment, Community and Local Government spending fell from 6.41% in 2008 to 3.39% in 2011 – the drop that largely reflects changes in the departmental composition.

-       Finance share of spending declined from 2.83% in 2008 to 0.75% in 2011 – a dramatic fall.

-       Foreign affairs and Trade, despite gaining a new function of Trade have seen their share of spending decline from 1.99% in 2008 to 1.51% in 2011.

-       Health – the largest spender in 2008 at 27.45% dropped to the second place in spending distribution with 28.25% in 2011 despite having lost a number of functions. Adding back Children function to the DofH, the department spending share rose to 28.7% in 2011.

-       Justice and Equality accounted for 5.25% in 2008 and this dropped to 4.84% in 2011.

-       Social Protection rose from being the second highest spending department in 2008 with 19.06% (virtually identical share to that of Education) to the first highest spending department in 2011 with 29.16%.

-       Public Expenditure and Reform – a new department that, at least in my opinion is failing to show much value for money so far – has managed to rake in spending amounting to 1.71% of total net voted expenditure in 2011 – higher spending priority than Foreign Affairs and Trade, almost identical priority to Jobs, Enterprise and Innovation, more than double the spending priority of the Department of Finance. Let us presume - for a moment - that the Department has two important, related, but not fully coincident functions: bring down current spending (since bringing down capital spending is no-brainer) and produce longer-term reforms of public services (which is not all about cuts, of course). Given the numbers achieved to-date - see forthcoming post on capital and current expenditure reductions - one should have serious questions about the new department value for money.

-       Taoiseach group saw its spending priority virtually unchanged over the years, declining marginally from 0.38% in 2008 to 0.37% in 2011.

-       Transport – the department with significant compositional changes – has seen its spending share decline from 6.47% in 2008 to 4.18% in 2011.

So overall, top 3 departments accounted for 64.83% of total net voted spending in 2008 and this figure rose to 75.48% in 2011. The rate of increase in these expenditure shares has accelerated over the years. Year on year, share of the three top spending departments in overall expenditure rose 2.97 percentage points in 2008-2009, 3.80 percentage points in 2009-2010 and 3.89 percentage points in 2010-2011. Once Children function is added back to Health, the rate of increase in 2010-2011 jumps to 4.34 percentage points.

Top 4^th and 5^th ranked departments (Justice and Equality and Transport) saw their combined share of spending declining from 11.71% in 2008 to 9.02% in 2011. This largely reflects changes in composition of the Department of Transport.

Together, Social Protection, Health and Children accounted for 46.51% of the spending in 2008 and this now is up at 57.88% in 2011. In other words, almost €6 per every €10 spent by the state goes to finance the two functions that constitute in traditional nomenclature social welfare benefits and social benefits (note that private spending on health is netted out via departmental receipts in the net expenditure figures). Education accounts for roughly the same share – ca 18% of total spend – in 2011 as in 2008. Economic sectors departments (other than Transport) used to account for 6.84% of the total spend in 2008 and this is now down to 4.56% in 2011.

In short, the priority of the Government spending over the years of the crisis has shifted firmly away from supporting economy’s productive capacity and delivering structural subsidies to ‘social and environmental pillars’, to serving social welfare functions and preserving as much as possible public health spending. It is worth noting that the latter, of course, has been achieved by shifting more costs burden onto the shoulders of health insurance purchasers.

05/07/2011: Irish Exchequer Expenditure: H1 2011

Previous posts on the H1 2011 Exchequer results covered Exchequer balance, Tax Burden composition, and Exchequer Receipts. This post will cover Exchequer Expenditure side of the balance sheet.

Please note: cross annual comparisons are distorted by the changes in departments compositions and remits. Nothing we can do about this.

Top level numbers for H1 2011.

Agriculture, Fisheries and Food (accounting for 1.8% of the total Net Voted Expenditure - NVE) spending stood at €388 million in H1 2011, down 28.9% on the same period for 2008 and down €79 million or 16% yoy, though all of the savings came from the capital side, with current spending up €87 million yoy (+44%).

Art, Heritage & Gaeltacht (0.5% of total NVE) managed to spend €108 million in H1 2011, down 67.3% on 2008. Spending here is down 68% yoy (saving €158 million) with most of savings coming from the current side, although in proportional terms capital savings are on par with current savings.

Communications, Energy & Natural Resources (0.4% of NVE) spending in H1 2011 was €98 million, up €13 million (+15%) on 2010. Increases in spending took place on current side (+€11 million or 28%) and capital side (+€2 million or 4%). Relative to H1 2008 spending is down 14.9% which is 7th lowest rate of savings amongst the departments.

Community, Equality and Gaeltacht Affairs (0.5 of NVE) - no, don't ask me why is Gaeltacht having itself spread over 2 departments - spent €105 million, down €79 million (-43%) yoy. This time around, most of the savings in volume came from the current spending side, but in relative terms, capital spending is down 77% while current spending is down 36% yoy. Department spending has fallen 53.9% on comparable period in 2008.

Defence (1.9% of NVE) spent €419 million, which is down 13% on comparable period in 2008, making the department 6th lowest saver in the entire voted expenditure set. Department spending was up €4 million yoy with all of the increase accounted for by current spending.

Education and Skills spent €4,066 million in H1 2011 which is €171 million above H1 2010. Capital side increased by €59 million (+58% yoy) and current side was up €113 million (+3%) yoy. The department is the third largest of all Government Departments, accounting for 18.6% of NVE. Overall austerity has resulted in a 4.8% decrease in Department spending through H1 2011 compared to H1 2008, making the level of savings achieved the fourth lowest of all departments.


Jobs, Enterprise, Trade & Innovation (1.5% NVE) spent €336 million in H1 2011, down 48% on H1 2008. Compared to H1 2010, department spending fell €219 million (39% drop yoy) with current spending falling €245 million (-62%), while capital spending rose €26 million (+16%). Much of the capital side increases across the departments is attributable to the timing of spending with previous Government actively delaying paying on capital projects until later in the year. At least, with the current Government, contractors might be getting paid more on-time for their work.

Environment, Community & Local Government (2.6% of NVE) spent €561 million in H1 2011, down 52.8% on H1 2008. Spending was down €200 million yoy (-26%) with capital savings of €119 million (-32%) and current savings of €81 million (-21%).

Finance (2.3% NVE) managed to spend €510 million in H1 2011, down 20.3% on 2008 and achieving savings of a miserly €4 million yoy, with €20 million saved on current spending side and a deficit on 2010 of €16 million on capital side.

Foreign Affairs and Trade (1.6% of NVE) spending of €342 million is down €61 million (-15%) yoy, with €59 million of the savings coming from the current side. Relative to H1 2008, current year performance is delivering savings of 29.7%.

Health (the largest of all departments, with 30.9% of NVE, although Social Protection is coming close second and is bound to overtake Health by year end) spent €6,757 million in H1 2011, up a massive €666 million yoy of which €662 million came from the current spending side. With all of this, Health spending is now down 0.8% on H1 2008. The figures are obviously distorted by the introduction of USC, but as of H1 2011, the department has achieved 3rd lowest rate of savings of all departments.

Another billionaire department: Justice & Equality (4.9% of NVE) had total spending of €1,081 million in H1 2011, up €32 million on H1 2010 (+3%), with deficit coming at €56 million on current side, offset by savings of €24 million on capital side. Department spending is down 12.2% on H1 2008 - 5th lowest rate of savings across all Departments.

Social Protection (soon to be the largest spending department in Ireland but in H1 2011 accounting for 29.8% of NVE) spent €6,517 million - up 10% or €589 million yoy, with €587 million of this increase coming from the current side. Compared to H1 2008, H1 2011 spending rose 49.5% making it the worst performing department when it comes to savings.

Taoiseach (0.5% NVE) came with a bill of €108 million in H1 2011, which was 23.1% above comparable period in 2008. More than that, the department managed to increase its spending on 2010 as well, with cost rising by €20 million (+29%) yoy all of which came from current spending increases.

Transport, Tourism & Sport spending of €593 million in H1 2011 was 187 million down on H1 2010 (-24%) with savings of €240 million achieved on capital side and current side yielding an overrun of €53 million on 2010. The department accounts for 2.9% of NVE and spending here is down 53.8% on H1 2008.

So the top of the line numbers are: in H1 2011 Total Net Cumulative Voted Spending stood at €21,898 million or which €20,547 million were accounted for by current spending and €1,351 million by capital spending. Overall expenditure is now €399 million above H1 2010 (no sign of austerity here, if anything, spending just rolls on at the aggregate) - an overspend of 1.9%. On Current expenditure side things are even more 'boomish' with overspend relative to 2010 at €892 million (+4.5%). Capital took another hit of real austerity with spending here coming €493 million below H1 2010 (-26.8%).
The above clearly shows that while austerity has caused some real pain in specific departments, it has not been successful in reducing total spending. This is even more worrisome, when one recognizes that by now, capital account has been drained with no sizable potential future savings to be achieved on this side. On the current expenditure side, austerity so far has meant taking spending on one side of the Exchequer shopping list and spending it on the other. One way or the other, this is not austerity, folks. It's reallocation of expenditure priorities.

Now, recall, in H1 2011 we spent total of €21,898 million. That is just €804.5 million in savings relative to H1 2008 (or 3.54% improvement) - after 3 austerity budgets!

So what do these figures look like in dynamic setting - month-to-month?
And where do we take money from and reallocate to?
No need for another comment here.

17/06/2011: Irish Exchequer Expenditure - May

A late catching up on the recent Exchequer figures for May. In the earlier post (here) I covered receipts side of the figures. Now, time to update the expenditure side as well. I was reluctant to write much about expenditure and revenue sides of the fiscal crisis in previous months, since early months show very little in terms of comparatives. By the end of May, however, almost 1.2 a year has gone by and some trends can be established, albeit of course with caution.

Total net spending by the Government for January-May 2011 was €18.364bn up on €17.867bn for the same period in 2010. Overall, spending fell 3.67% on the same period for 2008 (€699.5mln saved) but is up 2.78% on 2010 (dis-savings of €497.3mln).

This is not encouraging.
As chart above shows, the expenditure is now running between 2010 and 2008 levels. Sounds ok? Not really. Ireland will have to cut another ca 6% (based on rather rosy plans set out by the Troika back in November) in years to come. So far, we only managed to cut 3.67% relative to 2008 after three ‘savage cuts’ budgets.

The reason is that our 'cuts' were not really that deep, per se, but that they were transfers of expenditure from the capital side and some departmental current spending to Social Protection and Education & Skills. Here are two charts:


Here are some relative slippages (bear in mind that departments responsibilities and names have changed since 2008):
Social Protection spending rose 47.33% over the same period.

These were offset by above average (simple average of -20.69% decline across all departments) declines in spending levels in:

• Tourism, Culture and Sport – down 49.58%;
• Community, Equality & Gaeltacht – down 48.77%;
• Enterprise, Trade & Innovation – down 45.58%
• Environment, Community & Local Government – down 52.24%
• Foreign Affairs – down 28.93%
• Transport, Tourism and Sport – down 56.56%
  

Below average declines took place in:

• Agriculture, Fisheries and Food department spending declined 7.49% in January-May 2011 compared to the same period of 2008;
• Comms, Energy and Nat Resources – down 13.34%;
• Defence – down 15.69%;
• Education & Skills – down just 2.52%;
• Finance – down 17.925;
• Health & Children – down 1.75;
  

• Justice & Equality – down 15.525;
• Taoiseach’s – down 1.75%

Large fraction of these reductions is explained by the capital cuts (a subject for my future post) and by the timing of expenditure (we do not know if payments lags are rising in the public sector or not, and we do not know if capital spending is being delayed to generate positive news momentum).

But it is worth noting that some of the departments show deterioration in performance on the expenditure side relative to 2009-2010 (as opposed to 2008) base. Again, some of these are due to re-arranging of the departmental responsibilities, but in the end, what matters is that to-date, through the first 5 months of the year, Irish Exchequer expenditure cuts and tax increases have yielded just €699.5mln in savings on the 2008 levels.

Furthermore, we should note that promissory notes paid out to the banks in March are not factored into the overall voted expenditure, so the comparatives on the spending side are clearly showing that fiscal consolidation is not working so far. Which brings us to the following ‘rumour’ I heard from a senior governing coalition member. Allegedly, all indications are, Budget 2012 will be, to quote my source, “so bad, it’ll push thousands currently at the margin of leaving the country into booking their tickets out of Ireland this side of June 2012”. And this was in relation to the tax burden measures.

So lastly, lets take a look at year-on-year savings generated by all the austerity measures. The chart below shows that:

1. Savings generated earlier in the year in 2010 were driven primarily by the delays in payments and other temporary measures. Having started at a robust saving of 12.95% in January 2010, the Ex chequer allowed slippage of cuts to net a miserably low rate of overall expenditure reductions of just 1.55% for the year.
2. Both, in 2009 and 2010, by May, Exchequer spending was either contracting of rising at a much slower pace year on year.
3. The pattern for expenditure this time around – in 2011 – is strikingly different from that in either 2010 or 2009.
   

Economics 4/10/10: Exchequer deficit

Lastly, it's time to put the sums together.

Despite the heroic efforts of the Government and the Public Sector Unions, Exchequer deficit continues to trace out the exactly same path as 2008. And this is ex-banks:
As I pointed out in the previous post, we are 'saving' €1,562 million January 2010-September 2010 of which €1,406 million came from the capital budget cuts (the so-called investment (dis-)stimulus that Brian & Brian have promised to deliver in Budget 2009, then Budget 2010 and in all of their 'growth strategies' since the beginning of the crisis). Only miserly €156 million of savings came out of the public sector current spending, less than 1/10 of the total cuts.

More worrying is the fact that much of the capital cuts came in at the beginning of the year, and since July, these cuts are getting smaller and smaller as a share of overall capital budget allocation. Meanwhile, current spending cuts are becoming virtually invisible with time as well.

In June this year, capital budget was down 36% yoy. Today this decline stands at 32.1%. In January, we posted an impressive 11.9% cut, yoy, in current spending. This has steadily declined to 1.6% by August 2010 and finally to 0.5% in September 2010. Let's take a look at the latter number: current spending by the Government €30,088 mln through September, which is 1/2 of 1 percent lower than it was in the first 9 months of the disastrous 2009! Does anyone still wonder why the capital markets don't buy the story that Irish Government is capable of controlling its spending habits?

Let's cut to the chase. Despite all the rosy, warmly glowing reports about "yet another month of improved fiscal performance" it looks like we are turning yet another corner - the corner of rapidly evaporating savings. Next intersection: Disaster Avenue?

Economics 4/10/10: Exchequer Expenditure for September

Exchequer expenditure in details.

Starting from the top, the same picture as in August remains true - capital spending cuts drive overall performance on expenditure side, while current spending cuts are extremely shallow:
Notice also that both cuts are getting shallower as the year progresses. In months ahead, delayed payments to contractors will have to be settled, implying that it is likely that current spending is going to break the contraction cycle by the year end, while capital side savings are going to get shallower. It is, therefore, highly unlikely that overall year on year performance in terms of Exchequer spending will post a decline greater than 2% of overall spending in the end.

Detailed expenditure by department, year on year:
So where's the money being spent?
And how does it compare to the DofF targets?
Again, let's exclude capital spending and focus on current spending:

So for all the hoopla about draconian cuts and great courage of our public sector (remember, the Croke Park agreement claimed that €3 billion has been cut out of public sector wages alone), we have saved (January-September 2010) a miserly €1,562 million. Oh, about 5 weeks worth of our state borrowing so far or 3 weeks of our borrowing year to date. But even that number conceals the truth. Year on year, just €156mln - miserly number indeed - was cut out of current expenditure. That's right, folks, for the state that borrowed €16 billion this year so far, we managed to save less than 1/2 a week worth of what we issued in fresh bonds since January 1.

Put this into Croke Numbers perspective, at the rate things go, it will take 19.2 years for us to reach the magic 3 billion in savings number cited by the Bearded Ones.