Public infrastructure a zero-sum game
The Australian
January 19, 2015
TONY Abbott’s hopes of boosting infrastructure spending are being frustrated by the poor financial position of state governments, which are cutting back as fast as the federal government increases its contribution.
Government spending on engineering and construction work this year will be 19 per cent less than the peak reached in 2012-13, and total public-sector investment will be down by a third.
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Estimates by consulting firm BIS Shrapnel show there will be some recovery over the next four years, however, as a share of GDP spending will remain far below the average for the past decade.
Mr Abbott has sought to present himself as “the infrastructure Prime Minister” and he made infrastructure spending one of the central themes of last year’s G20 summit in Brisbane. Reserve Bank governor Glenn Stevens has endorsed the government’s efforts to lift infrastructure spending and thus lift demand when construction work on resource projects will be winding down, commenting that it both supports demand and, if done well, boosts the economy’s productivity in the long term. However, economic growth this year now looks as though it will be dragged lower by cuts to both resource and public-sector investment.
Federal Infrastructure Minister Warren Truss said the government had committed a record $50 billion investment for infrastructure in its first budget.
“State and territory governments are most directly responsible for delivering Australia’s public infrastructure, and the Australian government is keen to work with each jurisdiction to deliver high-quality, value-for-money projects,” Mr Truss said.
“The government also continues to encourage the expansion of private-sector investment in infrastructure, including under the $5bn asset-recycling initiative, which provides incentive payments to encourage the states and territories to recycle their assets and invest the sale proceeds in new productivity-enhancing infrastructure.”
Labor infrastructure spokesman Anthony Albanese said there was a gap between the government’s rhetoric and the reality.
“There have been no new projects added to the priority list of Infrastructure Australia since the change of government, while projects that were there have been cuts such as the (Brisbane) cross-river rail project.”
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Mr Albanese said state governments were under pressure and were cutting infrastructure because the benefits of it were seen only in the long term.
University of Wollongong research fellow Joe Branigan said the biggest barrier was the limits on state government spending.
“State governments are hitting budget constraints, as is demonstrated by both Western Australia and Queensland losing their AAA credit rating,” Mr Branigan said.
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“NSW held on to their AAA rating because it has a more diverse economy and is not as cyclical but the financial metrics would have shown they were a borderline case. They are at their system limit.”
An analysis of budgets for the federal government and the three biggest states — NSW, Victoria and Queensland — shows total capital investment peaked at $50bn in 2009-10 at a time when the Rudd government’s stimulus program was in full swing but had fallen by a third to $33.4bn last year. The latest round of budget updates shows that, out to 2017-18, there is only a marginal increase in spending to $35bn.
The Parliamentary Budget Office shows that the Abbott government did lift outlays on road and rail. Whereas spending was forecast in the 2013-14 mid-year budget update to peak in 2014-15 at $7bn, it will now climb to just less than $10bn in 2017-18
Although the states must match most commonwealth spending on individual projects, the commitments to projects such as West Connex in Sydney and road building for a second Sydney airport have been swamped by cutbacks in other areas by the states.
The Australian Bureau of Statistics’ latest survey of engineering and construction work, which includes most government infrastructure spending, shows that spending fell by 12.5 per cent in the past 12 months, while consulting firm BIS-Shrapnel estimates it will fall a further 5.2 per cent this year before starting to recover as proceeds of asset sales are rolled into new spending.
The firm says that having peaked at $32.8bn in 2011-12, spending will be down to $26.6bn this year, before lifting again to $33.3bn by 2017-18. That would represent 1.7 per cent of GDP, well below the average of the past decade of about 2 per cent and a 2010 peak of 2.4 per cent of GDP.
Mr Branigan said the more difficult circumstances of the states meant they were likely to make better decisions about what projects to support.