Common Goods & Distribution

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Common Goods & Distribution COMMON GOODS & DISTRIBUTION PUBLIC FINANCE AND ENVIRONMENTAL POLICY IN AN UNEQUAL WORLD vorgelegt von DAVID CHRISTIAN KLENERT, Diplom-Physiker, geb. in Konstanz von der Fakultät VI - Planen Bauen Umwelt der Technischen Universität Berlin zur Erlangung des akademischen Grades Doktor der Wirtschaftswissenschaften - Dr. rer. oec. - genehmigte Dissertation Promotionsausschuss: Vorsitzender: Prof. Dr. Stefan Heiland Gutachter: Prof. Dr. Ottmar Edenhofer Gutachter: Prof. Dr. Matthias Kalkuhl Gutachter: Prof. Dr. Georg Meran Tag der wissenschaftlichen Aussprache: 29. September 2016 BERLIN 2016 Abstract Tax policy in the 21st century faces three key challenges: mitigating inequality, the possibility of high levels of global warming through the unregulated release of greenhouse gases into the atmosphere and a lack of investment in infrastruc- ture. Global warming and underfinanced infrastructure are a consequence of mismanaged common goods. This thesis argues that policies regulating the use and the supply of these common goods can also have beneficial effects on the distribution of wealth and income. For that purpose I analyze the distributional effects of different policy de- signs which regulate the use and supply of common goods. The thesis consists of two parts each corresponding to one common good: In the first part, I study policies that manage the common good of the atmo- sphere in its function as a carbon sink and their distributional impacts. Such climate policies can affect poor households disproportionally since they spend a higher share of their income on carbon-intensive subsistence goods. The overarching research question in Part I is: how can climate policies be designed such that they are distributionally neutral or progressive? In this context I also discuss the following, more general question: to what extent can interactions between public and climate policies enhance welfare? Part II of this thesis focuses on infrastructure in a broad sense including transport and energy infrastructure as well as investment in the education sec- tor. Infrastructure is of major importance for an economy’s growth trajec- tory, but also underfinanced in large parts of the world. I therefore analyze the equity and efficiency impacts of different financing mechanisms for public investment in infrastructure. The main research question is: how can pub- lic investment in infrastructure be financed to be distribution-neutral or even inequality-reducing? I further use a model in which wealth is disaggregated into physical capital and land, and in which households differ in the strength of their savings motive, to answer the following question: which combination of wealth-based taxes can reduce inequality without harming efficiency? This thesis analyzes different design options for policies that regulate com- mon goods in terms of their equity and efficiency implications. The main find- ing of this thesis is that, when equity considerations are included in the assess- ment of policies which regulate common goods, these policies can be designed to be distribution-neutral or even progressive. It thus provides additional rea- sons for implementing stricter common good policies, such as a higher carbon price and increased public investment in infrastructure. It further argues that accounting for interactions between public and climate policies is needed for a sound appraisal of second-best policies. Finally, this thesis demonstrates that wealth inequality can be reduced without harming economic output. iii iv Zusammenfassung Drei der wichtigsten politischen Herausforderungen für Finanzpolitik im 21. Jahrhundert sind: die Reduzierung von Ungleichheit, globale Erwärmung durch den unkontrollierten Ausstoß von Treibhausgasen in die Atmosphäre und ein Mangel an Investitionen in Infrastruktur. Eine zu hohe Konzentra- tion von Treibhausgasen in der Atmosphäre sowie unterfinanzierte Infrastruk- tur sind eine Folge schlecht verwalteter Allmendegüter. Die vorliegende Dissertation vergleicht verschiedene Politikentwürfe zur Regulierung der Nutzung und Bereitstellung von Allmendegütern und deren Wechselwirkungen mit Ungleichheit. Es wird gezeigt, dass Politikinstrumente zur Regulierung von Allmendegütern so gestaltet werden können, dass sie gleichzeitig die Ungleichheit verringern. Die Dissertation besteht aus zwei Teilen die jeweils einem Allmendegut entsprechen. In Teil I untersuche ich die Verteilungswirkungen von Politikinstrumenten zur Regulierung der Nutzung der Atmosphäre als Senke für CO2 Emissio- nen. Klimapolitik kann arme Haushalte stärker treffen als reiche Haushalte, da erstere einen höheren Anteil ihres Einkommens für CO2-intensive Güter ausgeben. Die Forschungsfrage in Teil I ist daher: Wie kann Klimapolitik kon- zipiert werden, so dass sie verteilungsneutral oder progressiv wirkt? Außer- dem diskutiere ich, in wie weit Wechselwirkungen zwischen Wirtschafts- und Umweltpolitik die Kosten von Umweltpolitik senken können. Teil II behandelt das Thema der öffentlichen Finanzierung von Infrastruktur. Öffentliche Transport-, Energie-, Kommunikations- und Bildungs-Strukturen sind äußerst relevant für das Wirtschaftswachstum. Allerdings liegen die jährlichen Investitionen in Infrastruktur deutlich unter dem optimalen Niveau. Der zweite Teil befasst sich daher mit folgender Forschungsfrage: Wie können öffentliche Investitionen so finanziert werden, dass die Ungleichheit verringert wird, oder zumindest unverändert bleibt? Darüber hinaus untersuche ich die Frage ob Steuern, die nur auf bestimmte Vermögenskomponenten erhoben werden (wie z.B. auf Landrenten oder Erbschaften), die Ungleichheit senken können, ohne der Wirtschaft zu schaden. Die vorliegende Dissertation zeigt auf, dass Politikinstrumente, die die Nutzung und Bereitstellung von Allmendegütern (wie der Atmosphäre und Infrastruktur) regulieren, so konzipiert werden können, dass sie Ungleichheit verringern oder unverändert lassen. Die Reduzierung von Ungleichheit kann deshalb eine zusätzliche Motivation darstellen für strengere Klimapolitik und gesteigerte Investitionen in Infrastruktur. Darüber hinaus wird gezeigt, dass Wechselwirkungen zwischen Wirtschafts- und Umweltpolitik die Kosten von Umweltpolitik deutlich verringern können, und dass Vermögensungleichheit reduziert werden kann, ohne dadurch die Wirtschaftsleistung einzuschränken. v vi Contents Abstract iii Zusammenfassung v 1 Introduction 1 1.1 Economic inequality 4 1.2 The atmosphere as a common good 9 1.3 Infrastructure as a common good 14 1.4 Thesis objective and outline 18 I The atmosphere as a common good 31 2 How to make a carbon tax reform progressive 33 2.1 Introduction 36 2.2 The model 37 2.3 Results 38 2.4 Conclusion 42 3 Environmental taxation, inequality and Engel’s law 45 3.1 Introduction 48 3.2 The model 50 3.2.1 Calibration 53 3.2.2 Solving numerically 53 3.2.3 Measures of distribution 54 3.3 Optimal environmental tax reform 54 3.4 Robustness: lump-sum transfers, subsistence consumption and greening of preferences 58 3.4.1 Optimal taxation without lump-sum transfers 58 3.4.2 The role of non-homothetic preferences 59 3.4.3 Parameter sensitivity and greening of preferences 61 3.5 The case of a calibrated pre-existing tax system 62 vii viii CONTENTS 3.5.1 Calibration of the suboptimal income tax system 63 3.5.2 Revenue recycling scenarios 63 3.5.3 Results 64 3.6 Conclusion 66 4 The fiscal benefits of climate policy 71 4.1 Introduction 74 4.2 Current assessments of climate change mitigation policies 76 4.2.1 Integrated assessment modeling of optimal mitigation and second-best policies 76 4.2.2 Lower cost of public funds: The double ’dividend’ of environmental tax swaps 78 4.3 Why climate change mitigation enhances welfare 80 4.3.1 Reduced international tax competition: Substituting rent taxation for capital taxation 81 4.3.2 Alleviated underinvestment: Inducing a ’macroeco- nomic portfolio effect’ by rent taxation 83 4.3.3 Lower private abatement costs: Restructuring public spending 85 4.3.4 Optimal public spending level: Alleviating budget constraints 87 4.3.5 Using carbon revenues for reducing inequality: the role of public investment 91 4.3.6 Intergenerational distribution: fiscal strategies for Pareto-improving climate policy 95 4.4 Discussion:Integrating climate policy and public finance in one framework 97 4.5 Conclusion: Implications for Policy Assessment 100 II Infrastructure and inequality 113 5 Distributional effects of public investment 115 5.1 Introduction 118 5.2 Model 121 5.3 Results 123 5.3.1 Steady state and validity range 124 5.3.2 The effects of policy 126 5.3.3 Simulation and calibration 129 5.3.4 The role of the elasticity of substitution between capi- tal and labor 131 CONTENTS ix 5.4 Conclusion and outlook 134 6 Infrastructure and inequality 139 6.1 Introduction 142 6.2 Model 144 6.2.1 The firm 145 6.2.2 The high-income households 146 6.2.3 The middle-income households 146 6.2.4 The government 147 6.2.5 Equilibrium and the Pasinetti Paradox 147 6.2.6 Measures of distribution 148 6.2.7 Calibration 148 6.3 Results 149 6.3.1 Long-run results 150 6.3.2 Transitional dynamics 154 6.4 Extensions and robustness 155 6.4.1 Extensions 156 6.4.2 Robustness 161 6.5 Conclusion 163 7 Is capital back? 175 7.1 Introduction 178 7.2 A simple model of bequest heterogeneity 181 7.3 The role of land rents and savings behavior for the economic impact of fiscal policy 184 7.3.1 Model 184 7.3.2 The revenue side of fiscal policy 186 7.3.3 The spending side of fiscal policy 193 7.4 Robustness checks and sensitivity analysis 195 7.4.1 The role of preferences 195 7.4.2 Sensitivity analysis of the impacts of fiscal policy 196 7.4.3 Alternative spending option: Infrastructure investments 200 7.5 Conclusion 201 8 Synthesis and outlook 211 8.1 Summary of the results 212 8.1.1 Climate policy 212 8.1.2 Infrastructure policy 213 8.2 Models of household heterogeneity 214 x CONTENTS 8.3 Extensions 216 8.4 Policy relevance 219 8.4.1 Implications for climate policy 219 8.4.2 Implications for infrastructure policy 221 8.4.3 Implications for combating inequality 222 List of publications 227 Statement of Contribution 229 Tools and Resources 231 Acknowledgements 233 Chapter 1 Introduction The global economy relies on the use of many common goods.
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