Economics and Rent Regulation: a Call for a New Perspective
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ECONOMICS AND RENT REGULATION: A CALL FOR A NEW PERSPECTIVE PHILLIP WEITZMAN* INTRODUCTION During periods of rapidly escalating rents, housing activists often urge the adoption or extension of measures to regulate rents and to strengthen se- curity of tenure. Their proposals, generally lumped under the heading of rent control, are soon met by an outpouring of economic analyses purporting to demonstrate that rent controls are at best misguided and, more likely, a pro- gram for unmitigated disaster. Among the most important claims is that rent regulation inevitably leads to undermaintenance, reduction of rental housing construction, housing abandonment, and misallocation of housing resources.' These arguments are so universally shared by members of the economics pro- fession that they are often used by textbook writers to educate introductory students to the "evils" of government interference with competitively deter- mined market prices.2 Economic literature is rich with arguments and counterarguments re- garding other areas of government interference in market pricing such as min- imum wages, agricultural price supports, fixed exchange rates, and tariffs. Yet there is virtual unanimity among economists that rent controls are "bad" and have no place in housing policy.' This paper explores the logic of the conventional economic analysis of rent regulation and discusses some of its deficiencies. It argues that the basic * B.A., Tulane University, 1964; Ph.D., University of Michigan, 1969; J.D., Fordham University School of Law, 1975. Member of the Bars of New York and the District of Colum- bia; private economic and housing consultant I would like to thank Robert Schwarz and Henie Lustgarten for their encouragement and valuable suggestions that made this article possible. I would also like to thank the members of the New York University Review of Law & Social Change for their excellent editorial comments and assistance. 1. See President's Comm'n on Housing, The Report of the President's Commission on Housing 91-92 (1982) [hereinafter President's Comm'n on Housing]; M. Lett, Rent Control: Concepts, Realities, and Mechanisms 42-48 (1976); Rent Control, Myths and Realities: Inter- national Evidence of the Effects of Rent Control in Six Countries (W. Block & E. Olsen eds. 1981) [hereinafter W. Block & E. Olsen]; Resolving the Housing Crisis: Government Policy, Decontrol, and the Public Interest (M. Johnson ed. 1982) [hereinafter M. Johnson]; C. Baird, Rent Control: The Perennial Folly (Cato Public Policy Research Monograph No. 2, 1980). 2. See, eg., W. Baumol & A. Blinder, Economics: Principles and Policy 64-69 (2d ed. 1982); C. McConnell, Economics: Principles, Problems, and Policies 715-16 (8th ed. 1981); P. Samuelson, Economics 396-97 (1lth ed. 1980). But see W. Baumol & A. Blinder, supra, at 606 n.5 for virtually the only reference in an introductory economics textbook to the possibility of "salutory effects" of rent control in the short run. 3. See Frey, Pommerehne, Schneider & Gilbert, Consensus and Dissension Among Econo- mists, 74 Am. Econ. Rev. 986, 987-991 (1984). 975 Imaged with the Permission of N.Y.U. Review of Law and Social Change REVIEW OF LAW & SOCIAL CHANGE [V/ol. XIII:975 supply and demand model is inadequate for an understanding of the residen- tial rental housing market and that there is little empirical data to support many of the economic criticisms made about the new generation of rent regu- lations. It also argues that policy makers need to consider contemporary rent regulation as more complex, sophisticated, and purposeful than a simple price ceiling in a competitive market. I THE BASIC ECONOMIC MODEL The basic analytical tool used by economists in their criticisms of rent control is the simple supply and demand model of a competitive market.4 In this model the supply of housing services is considered fixed within a short period of time or, at best, is not very responsive to price changes in the "short run."'5 Supply is drawn as a vertical (or nearly vertical) line. (See Figure 1.) Demand, on the other hand, is drawn sloping downward to reflect the inverse relationship between price and the amounts people are willing and able to purchase. While the degree to which people will adjust their demands to price changes in the "short run" is subject to dispute, there is little doubt that price changes will trigger some response. In a competitive market, the rent will tend to be that price at which the amount of housing services7 landlords are willing and able to supply equals the amount tenants are willing and able to purchase. (Rm for "market rent" in Figure 1.) If there were no shortages for any significant period of time, people would offer higher than existing rents to induce landlords to rent to them. If there was a surplus of housing, landlords whose units were not being rented would agree to accept lower rents rather than take the loss that comes from a vacant unit.8 Fluctuations in demand or supply (if any) therefore would be 4. Most serious housing analysts modify their analysis to take into account the fact that the housing market is segmented into various submarkets and that the wide variety of types of housing are not totally substitutable. However, the simplified supply and demand model presented here is the one usually appearing in the basic economics textbooks and is implicitly used by most of the economic critics of rent regulation. The existence of market segmentation is important here primarily because differences in local attitudes and regulations concerning rent and eviction controls may affect the relative attractiveness of investment in rental housing. 5. The "short run" is conceptually a period of time of undefined length in which the total level of investment in housing cannot be significantly changed. Most students of rental housing markets believe that the short run for rental housing may be quite long, especially as compared to other goods and services. See M. Stegman & H. Sumka, Nonmetropolitan Urban Housing: An Economic Analysis of Problems and Policies 89 (1976); Moorhouse, Optimal Housing Maintenance Under Rent Control, 39 S. Econ. J.93 (1972). 6. In technical terms, short run supply has a price elasticity approaching zero, while price elasticity of demand is negative. 7. Housing economists often use the term "housing services" rather than "number of units" to reflect that a given dwelling unit can vary in the amount to which it yields services valued by tenants (e.g., quality, space, and amenities). "Housing services," or what I will simply refer to as "housing," is the abstract unit of analysis used in this paper. See Olsen, An Econometric Analysis of Rent Control, 80 J. Pol. Econ. 1081, 1082 (1972). 8. Provided that rents exceed operating costs, a vacant unit can only reduce net income. Imaged with the Permission of N.Y.U. Review of Law and Social Change 1984-85] ECONOMICS AND RENT REGULATION Figure 1 Price of Rental Housing Services S R- Rc -------------------------------------- Qm QC Quantity of Rental Housing Services met by changes in rents that would tend to restore the balance between the amount desired and the amount offered. 9 Two important consequences follow from the model. First, in a competi- tive market no landlord can succeed in raising rents above the market level. This is another way of saying that there is no exercise of monopoly power to "exploit" tenants.' 0 Second, if the housing rentals yield profits greater than other markets, investment capital will flow into residential construction, supply of rental housing will gradually be expanded through new construction, rehabilitation, or conversion, and any excessively profitable rents will ultimately be elimi- nated. 1 On the other hand, if rentals yield low returns, investors will gradu- ally withdraw their capital from rental housing. The market would experience less construction, more conversion to other uses and, perhaps, accelerated de- terioration or abandonment of properties. No other benefit can accrue to a landlord by keeping a unit off the market because no individual landlord can influence the market rent. 9. The market's function is to set a price or rent that will tend to equate supply with demand. Nothing in this market-clearing process guarantees a socially acceptable minimum housing standard or rental levels that meet any particular definition of "affordability." 10. See Block, Postscript: A Reply to Critics, in W. Block & E. Olsen, supra note 1, at 292-93; Hazlett, Rent Controls and the Housing Crisis, in M. Johnson, supra note I, at 280. 11. It is a fundamental tenet of market-oriented capitalism that investment capital will tend to flow into industries where the rate of return (adjusted for risk) is greater than average and will tend to leave industries where the rate of return (adjusted for risk) is less than average. The existence of above normal ("excess" or "pure") profits is the key to expansion or contrac- tion of industries. Imaged with the Permission of N.Y.U. Review of Law and Social Change REVIEW OF LAW & SOCIAL CHANGE [Vol. XIII:975 Major negative effects of rent control are inferred from this portion of the analysis. Controls lower rents below unregulated market levels and allegedly force property owners to accept a less than competitive return on their invest- ment.' 2 This is illustrated in Figure 1, where the permissible controlled rent is denoted by Rc. At this rent level the quantity of housing services demanded (Qc) exceeds the amount landlords are willing and able to supply