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This paper is prepared for staff SAIDA~<2use and is not for publication SW r P43 The views expressed are those of the author and not necessarily those of the Bank. Public Disclosure Authorized INTERNATIONAL BANK FOR RECONSTRUCTION AND DEVELOPMENT INTERNATIONAL DEVELOPMNT ASSOCIATICN Economics Department Working Paper No. 43 TAXATION AND EARMARKING IN D f E & D April 1, 1969 SEP 2 1 8 INTERNAIONAL BANKrOR This study of earmarking OR V9T.OP*aper on "The Earmarking of Taxes for SrlnoAa5y In Develop- Public Disclosure Authorized ing Countries", (Economics Department Working Paper No. 1). The limited objective of this paper had been to establish enpirically whether any relation- ship appears to exist between earmarking and a higher relative expenditure allocation for highways than in the absence of earmarking. The present study is much wider. It makes an overall evaluation of earmarking in developing countries in which the findings of the highway study have been incorporated. The analysis is theoretical but is supported by empiri- cal studies. It focuses in particular upon the relation- ship between earmarking and certain crucial problems of public expenditure determination as they arise in Public Disclosure Authorized developing countries (e.g. political decision-making, bureaucratic inefficiencies, the undesirable growth of non-development expenditure, etc.). I am indebted -9 \ g in particular to Stanley Please, Chief of the Fiscal Policies of Developing Countries Division, for helpful WBG comments throughout this study and also to my other colleagues, especially John Holsen. In the IMF, both Leif Iliuten and Joergen Lotz have taken their time to discuss with me the findings of the study. I have also received valuable suggestions from Dr. Charles J. Goetz of the Virginia Polytechnic Institute. How- ever, I am solely responsible for this draft. Fiscal Policies of Developing Countries Division Public Disclosure Authorized Prepared by: Per Eklund Assisted by: Rosalinda Dacumos TAM,E OF CONTENTS Page No. SUMMARY (i vi) CHAPTER I EVOLUTION OF EARi4ARKING 1 -- Introduction 1 -- Literature 2 -What is an earmarked tax? 4 -Types of earmarking 5 -Insulation of revenue 5 -The tax base - earmarking versus general fund 6 -Developed countries 6 -Developing countries 7 -Earmarking and degree of social and economic development 7 CHAPTER II BUDGET POLICY AND EARAA.RKING OF TAXES 9 -Targets of budget policy 9 -The benefit of theory of taxation 10 -Satisfying collective wants 11 -The Lindahl theory 13 -User charges 14 -Annex Chapter:-II CHAPTER III COiPARISON OF AN ACTUAL SYSTEA OF PARLIAAENTARY DEMOCRACY WITH THE LINDAHL THEORY 16 -Individual evaluation 16 -Reflections of individual Preferences in political programs 18 -Accommodation of minority and special interests under majority voting 18 -Number of groups 18 -Voting and legislative procedures 19 -Correction of divergences 19 -Costs and benefit evaluation of public expenditure 19 -Separation between basic and appropria- tions legislation 20 -Unstable majority coalitions 21 -i4inority groups 22 -Time dimension 23 (ii) TABLE OF CONTENTS (Continued) Page No. CHhPTER IV THE LINDAHL THEDRY APPLIED 24 -Summary 24 -Developing countries 26 -Unstable majority coalitions 27 CHAPTER V TWO SPECIAL CASES 29 -Earmarking and Local Government 29 -IMlustrations 30 -Foreign Aid 31 CHAPTER VI BUDGETING UNDER INEFFICIENCY 33 -Political interference 33 -Administrative inefficiency 34 -Remedies - the role of earmarking 34 -A bias against developmental goods and services in the budget making? 36 -Earmarking promotes the development effort 38 -The bureaucracy - To reach agreement to shift to earmarking? 38 -Savings through taxation - A reality or mirage 40 -Annex Chapter VI CHAPTER VII EARKA9RKING FOR HIGHW4AYS IN DEVELOPING COUNTRIES - AN EAPIRICAL STUDY 43 -3urvey results 43 -Earmarking and non-earmarking countries -- Cross section analysis 44 -Earmarking countries 45 -Time series analysis 46 -Countries which initiated or discontinued earmarking 47 -Summary of findings 48 -Explanation of findings 49 -A new theory of the budgetary process 49 (iii) TABLE OF CONTENTS (Continued) Page No. CHAPTER VIII BENEFITS VERSUS COSTS OF EARARKING 53 -Budget rigidity 53 -Periodic re-evaluation of the earmarking arrangement 54 -Statutory versus constitutional earmarking 57 -Betterment levies 57 -Earmarking for maintenance or for investment 59 -Program and performance budgeting and earmarking 60 -Survey 62 -Earmarking and short-run demand control policy 62 CHAPTER IX ELMRMARKING IN THE PHILIPPINES - A CASE STUDY 65 -Revenues 65 -Unstable majority coalitions 66 -Political interference 66 -Administrative inefficiency 66 -Earmarking for eco mmic development 67 -The highway special fund 70 -New Tax program 71 -Conclusion - Philippines 71 -Recommendation 72 CHAPTER X CONCLUSIONS 73 -M<ultiple preferences for public goods and services 73 -Theory versus a model parliamentary democracy 74 -Theory versus developing countries 75 -Displacement effect 77 -Empirical findings 77 -Developed versus developing countries 79 -Re-evaluation of earmarking 79. (iv) TABLE OF CONTENTS (Continued) ANNEX I DECISION i4AKING IN A PARLIAKENTARY DENOCRACY -- K.kJORITY VOTING ANNEX II EA.RARKING FOR HIGHWAYS IN DEVELOPING COUNTRIES -Statistical tests ANNEX TO CHAPTER II THE THEORY OF SATISFYING COLLECTIVE WANTS -The Lindahl theory -How to reach the equilibrium -Benefit allocation versus redistribution equity considerations -Revelation of preferences -A more realistic model with two public goods -Group behavior under voting - A majority rule budgetary model ANNEX TO CHAPTER VI CHANGES FROM GENERAL FUND TO EARMARKING -- A THBERETICAL ANALYSIS -Reduction of unit costs -Change in budgetary ratio REFERENCES The motivation for this study within the Bank came from two directions. At the operational level, we have been concerned that the Bank has been in danger of a schizophrenic attitude on the desirability of earmarking as a fiscal device. Whilst at the macro level of fiscal policy discus3ion there has been a widespread (though not universal) ten- dency to deplore earmarking, at the project level the Bank has concurred with, encouraged and even insisted on the earmarking of government funds. Secondly in trying to bring to bear upon this operational question, the findings of analytical and empirical study to be found in the literature on public finance, we have been surprised to find how little attention students have given to this precise issue. Thus a need has arisen to help fill part of this gap in our basic knowledge. The study sets out to explore more fully the widespread dislike of earmarking by many students of public finance. The basis for this dislike is quite simple. It merely states that earmarking imposes a constraint on the rational allocation of a given volume of government funds to different func- tions, regional groups, etc. and as a consequence prevents the implementation of a flexible budgetary policy for maximizing society's welfare. It is analogous to a constraint which prevents a person consuming out of his given income a bundle of goods and services such that the weighted marginal utility of each component of the bundle is equal. Just as individual welfare is maximized by ensuring that this optimum expenditure pattern is achieved, so society's welfare is maximized by ensuring that marginal allocations of budgetary funds can be so adjusted that the last unit of money spent in all directions gives the same utility. In effect what this study emphasizes is that this conventional attitude towards earmarking is based on analysis which is not only simple but also simplistic. In doing so it does not reject the dangers which arise from a misallocation of resources due to earmarking. On the contrary, it is emphasized that this is one of the major elements in the trade-off exer- cise which has to be undertaken to determine the desirability of earmarking in any particular case. However, the study argues that the process by which both the level and pattern of government expenditures are determined is far more complex in both conception and execution than is implied by an analogy with a housewife spending the weekly household income on food, clothing, luxuries, etc. To begin with, in conception this analogy is largely irrelevant. Except in the most dictatorial of political regimes, no single preference function exists. Society is a complex organization in which group interests rarely coincide and thus the process by which political decision-making comes about is crucial. Theorists and practitioners in the field of public finance typically ignore this complexity and more typically still, external observers and advisors on national tax policy analyze and prescribe with virtually no - ii - recognition of the problems arising out of the decision-making process within a particular country. This study has pursued the decision-making process more fully. In doing so it has drawn heavily upon the work of Erik Lindahl.l/ This theory deals with the analogy between budget determination in the public sector and price formation in the market for private goods and services. As such it draws out more explicitly the view of NIusgrave 2/ and others that: "'....the inter-relation betwfeen the tax (cost) and experiditure (benefit) side of the budget is the essence of fiscal economics and that a theory of taxa- tion distinct from that of expenditures has little meaning." To Lindahl the central issue is the need for a simultaneous consideration of the level and pattern both