Marginal Cost of Public Funds: from the theory to the empirical application for the evaluation of the efficiency of the tax-benefit systems Francesco Figaria, Luca Gandulliab, Emanuela Lezzia,b a University of Insubria, b University of Genova Abstract The measurement of efficiency of the tax-benefit systems is often limited to proxies as individual work incentive indicators or labour supply elasticities. In our work, we estimate the Marginal Cost of Public Funds (MCF) as an overall indicator of efficiency of tax-benefit systems and reforms. The marginal cost of public funds is the marginal welfare cost for the government of raising revenue by distortionary taxes popolarised in the theoretical optimal taxation literature. The novelty of our work is the calculation of the MCF indicator fully based on empirical micro data representative of the population. This indicator combines both changes in labour force participation (extensive elasticities) and hour-of-work labour supply elasticities depending on working (intensive elasticities) with the incentives embodied in the tax benefit system at the intensive (effective marginal tax rates) and extensive margin (participation tax rates). Our results, related to the Italian case, show first the importance of taking into account the heterogeneity of the population with the second earners, usually women (both single or in couple), facing a more inefficient system compared to the first earner. Second, our micro-data based indicator shows the potential bias of MCF indicators based on stylised and hypothetical measures of work incentives, as usually adopted in the theoretical optimal taxation literature, given that the variations due to the assumptions related to elasticities and effective tax rates explain a large part of the indicator itself. Keywords: Marginal welfare cost, labour supply, tax-benefit system, microsimulation JEL classification: H21, H41, H20 Pag. 1 a 32 1. Introduction Economists have long been concerned with finding the optimal level of government spending. The classic formulation of the problem was given by Samuelson (1954) who assumed that the government is financed entirely by lump-sum taxes and not by distortionary taxes. In early theoretical contributions, Stiglitz and Dasgupta (1971) and Atkinson and Stern (1974) demonstrated that the Samuelson rule for the optimal provision of public goods needs to be modified to account for tax distortions (Ballard and Fullerton, 1992). Even before Samuelson’s paper, Pigou (1947) pointed out that public expenditure is usually financed through non neutral taxes that causing distortions in the allocation of resources impose “indirect damage on the taxpayers … over and above the loss they suffer in actual money payment”. Harberger (1964) provided formulas to measure the “excess burden” caused by distortionary taxes instead of lum-sum taxes. In this perspective, the most prominent calculations of marginal welfare cost of raising revenue by distortionary taxes are those of Browning (1976 and 1987) for taxes on labor income in the United States. Browning labelled the welfare cost of taxation as the “marginal cost of public funds” (MCF), defined as the direct tax burden plus the marginal welfare cost produced in raising the tax revenue. The literature that followed the contribution by Browning debates the relative merits of many different measures of excess burden of taxation and of the additional excess burden per marginal dollar of revenue (see for instance Auerbach and Rosen, 1980). However, much of this literature is fragmented because authors have used different measures for MCF, based on different assumptions about the nature of government spending, the type of tax used to finance the government expenditure and labour market behaviour (Dahlby, 2008; Hansson, 1984). Notwithstanding such enhancements in the literature, in the empirical evaluation of taxbenefit systems and their reforms the measurement of efficiency is very much limited to proxies as static individual work incentive indicators (Jara and Tumino 2013) or labour supply elasticities (Bargain et al. 2014). The substantial theoretical literature on the concept of the marginal cost of public funds has not been followed by enhancements of its empirical measurement. However, the marginal cost of public funds has recently attracted a great deal of interest from policy makers who have begun to think of it as a practical tool for measuring the efficiency costs of a given tax instrument or tax reform due to the associated indirect distortionary effects in addition the direct effect of the tax increase. Although different empirical approaches have been proposed they do not take fully into account the heterogeneity of the population of interest. The aim of this paper is to fill this gap by implementing a marginal cost of public funds indicator fully based on empirical micro data representative of the Italian national population and Pag. 2 a 32 taking into account the details of the tax-benefit system by using EUROMOD, the EU-wide fiscal microsimulation model (Sutherland and Figari, 2013). In order to do so, we make use of the analytical measure of the marginal cost of public funds derived by Kleven and Kreiner (2006) who assume a range of stylised and hypothetical values for the parameters involved in the calculation of the marginal cost of public funds. In order to take into account the heterogeneity in household characteristics and budget constraints, we exploit fiscal microsimulation techniques (Figari et al. 2015) which apply detailed tax-benefit policy rules to a representative sample of households, using survey or register information on household characteristics and market income as input. The first-order impact of taxbenefit policies on household incomes allow us to consider the entire distribution of the work incentive indicators at intensive (Effective Marginal Tax Rates) and extensive margin (Participation Tax Rates). Moreover, static calculations of the effect of tax-benefit policies represent the key ingredient of the behavioural model used to derive labour supply elasticities. We test the sensitivity of our micro-data based indicator with respect to those based on stylised and hypothetical measures of work incentives and the lack of robustness of the marginal cost of public funds that we observe when stylised parameters values are used suggests the importance of focusing on micro-data evidence. The remainder of the paper is structured as follows. Section 2 presents the theoretical framework adopted for our measure of the marginal cost of public funds reviewing the main concepts and applications found in the literature. We specify our empirical implementation in Section 3 and we present our results in Section 4. Section 5 discusses the main policy implications and concludes. 2. The Marginal Cost of Public Funds The marginal cost of public funds (MCF) quantifies the welfare loss incurred by society in raising an extra euro of revenue to finance government spending. It is an indicator widely used in the public economics literature for the evaluation of public spending programs requiring the transfer of resources from the private to the public sector (Dahlby, 2008). Specifically, the marginal cost of public funds measures the efficiency loss which occurs when financing public spending programs. An expenditure program will be efficient only if its benefits are at least as large as the direct cost and the welfare cost of the funds. Welfare costs (or excess burdens) occur because of the distortion that taxes introduce in the allocation of resources. Taxes on labour income, for example, distort the labour supply decisions of workers. The efficiency loss depends on the behavioural responses of economic agents which affect the total supply in the economy and hence the tax bases. A MCF of, for example, 1.25 means that marginal government spending must generate a marginal benefit of at least 1.25 in order to Pag. 3 a 32 compensate for both the tax increase and the associated indirect distortionary effect (Hansson, 1984). Typically, the MCF is greater than one that is 1+α where α represents the efficiency loss (or cost of the distortion). This means that for raising an additional euro of tax revenue, at the existing rate, the society pays an efficiency cost of α while the total cost for the economy is 1+ α. Therefore, the higher the MCF the larger the cost of the distortion compared to the tax revenue gains (Barrios et al, 2015). Many formulas for the MCF have been proposed in the public finance literature. Usher (1984) and Wildasin (1984) derive a formula for a proportional income tax where all individuals have the same labour supply elasticities. Wildasin (1984) suggests a formula for the MCF for a “digressive” income tax and a proportional income tax (assuming that all the marginal tax rates are increased in the same proportion). Browning (1987) and Mayshar (1991) propose a formula for a single-person framework, and Dhalby (1998) shows how Browning and Mayshar’s formulas are special cases of his generalised one. Various approaches have been used to estimate the MCF at macro or aggregate level. By using the CGE modelling, researchers provide estimates for the MCF for taxes in the US (Ballard et al., 1985), in Sweden (Hansson and Stuart, 1985), in Finland (Dixon et al., 2012), in African countries (Auriol and Warlters, 2012) and in the EU countries (Barrios et al, 2013). Dahlby and Farede (2012) use econometric estimations to derive the MCF of Canadian provinces for corporate income tax, personal income tax and sales tax. Stuart (1984), Ballard (1990), and Ballard and Fullerton (1992) applied an approach based on computer simulation techniques. Although most of these studies has focused on the effect of taxation on labour supply, it is difficult to compare their findings because these contributions are based on different assumptions about the nature of government spending, the type of tax of interest, and the labour market behaviour. This literature follows a common approach which considers labour supply responses only along the intensive margin, i.e. changes in hours of work for those already working and not along the extensive margin – the margin of entry and exit from the labour market. However, the empirical labour market literature shows that changes in labour force participation is primarily responsible for the observed variation in the labour supply (Heckman, 1993; Blundell and MaCurdy, 1999). Consistently with this empirical literature Kleven and Kreiner (2006) investigate theoretically the implications of extensive labour supply responses (participation in labour force) for the marginal cost of public funds. They derive an analytical expression for the MCF that is function of the observable tax and benefit parameters along with labour supply elasticities on the intensive and extensive margins of response. Therefore, the marginal cost of public funds is computed as follows: Pag. 4 a 32 𝑀𝐶𝐹 = 1 ∑𝑙𝑖=1 [1 − (1) 𝑚𝑖 𝜏𝑖 𝑐 1 − 𝑚𝑖 (Φ𝑖 𝜀𝑖 − 𝜃𝑖 ) − 1 − 𝑚𝑖 𝜂𝑖 ] 𝑠𝑖 where 𝑚𝑖 is the marginal effective tax rate (at the intensive margin for individual i), and 𝜏𝑖 is the participation tax rate (marginal tax rates at the extensive margin for individual i). Moreover, in this formula there are two margins of labour supply response: 𝜂𝑖 , the participation elasticity, and 𝜀𝑖 , the hours elasticity, conditional on already participating. The uncompensated elasticity at the intensive margin can be decomposed into a compensated elasticity, 𝜀𝑖𝑐 and an income effect 𝜃𝑖 : 𝜀𝑖 = 𝜀𝑖𝑐 − 𝜃𝑖 The term Φ𝑖 in the formula (1) indicates the change in the ratio of marginal over average tax rates at the margin. Assuming that the MCF is calculated for a proportional tax increase, Φ𝑖 = 1 and considering the uncompensated elasticity at the intensive margin, the MCF is computed as follow: 𝑀𝐶𝐹 = 1 𝑚 𝜏𝑖 𝑖 ∑𝑙𝑖=1 [1 − 𝜀 − 𝑖 1 − 𝑚𝑖 1 − 𝑚𝑖 𝜂𝑖 ] 𝑠𝑖 (2) The weight 𝑠𝑖 are the earnings shares, equivalent to the tax increase shares of the different income groups in the total taxes (because of the proportional tax reform case). This measure does not include into the calculation of the aggregate costs distributional concerns. That is, it does not consider the implication of a tax reform on social welfare thus focusing entirely on the efficiency aspect of taxation1. This implies that the social value of an extra unit of consumption is uniform across all individuals in a society. However, even if distributional concerns are not addressed explicitly, heterogeneity still matters for the welfare cost of raising government revenue (Kleven and Kreiner, 2006). There is in fact a high degree of variation and correlation in earnings, taxes, benefit, and behavioural parameters across the population that is taken into account. By using stylised and hypothetical values for labour supply elasticities, Kleven and Kreiner, (2006) find that the MCF rises dramatically once that the heterogeneity in the labour supply response across different categories of workers is taken into account. Moreover, they show that the estimated effect 1 This is the most common approach in the literature. A measure which includes into the calculation of the aggregate cost the distributional preferences, the heterogeneity of wages and labour fixed costs is the broader concept of “social marginal cost of public funds” (SMCF) developed by Dahlby (1998 and 2008). Kleven and Kreiner (2006) also present a more general theoretical framework to measure SMCF. Pag. 5 a 32 of taxes varies significantly once that the participation effect is distinguished from the number of hours of work. In this paper we make use of the MCF formula proposed by Kleven and Kreiner, (2006) thus following their analytical and empirical approach in calculating a MCF measures for Italy. In this respect, we follow Decoster et al. (2015) that is the only attempt to derive the MCF taking fully into account the heterogeneity of the population although using stylised labour supply elasticities. 3. Empirical implementation for Italy In order to derive the MCF taking fully into account the heterogeneity of the population and the budget constraints faced by individuals, we need information on the full distribution of earnings, marginal effective tax rates, participation tax rates, and intensive and extensive elasticities. Such information are derived exploiting a microsimulation approach (Figari et al. 2015), in order to compute static work incentive indicators and to derive the budget set used to estimate a structural model of labour supply in order to derive intensive and extensive elasticities. 3.1 Microsimulation model, data and sample of interest This paper uses the Italian component of EUROMOD, the European-wide tax-benefit model. EUROMOD simulates tax liabilities (direct taxes and social insurance contributions) and cash benefit entitlements on the basis of the tax-benefit rules in place and information available in the underlying dataset. The components of the tax-benefit systems which are not simulated due to lack of information on previous employment and contribution history in the cross-sectional survey data (e.g. contributory pensions), as well as market incomes, are taken directly from the data (Sutherland and Figari, 2013). The simulation of the Italian tax-benefit system has been cross-checked with administrative statistics and tested through a number of other applications (e.g. Dolls et al., 2012; Bargain et al., 2014; Figari and Fiorio, 2015; Paulus et al. 2016). The underlying input dataset comes from the Italian component of the 2010 European Union Statistics on Income and Living Conditions (EU-SILC) made available by ISTAT. The data contains information on 5,963 households and 47,420 individuals. Monetary values refer to the 2009 as well as the simulation of the tax-benefit system. The sample of interest is composed of individuals in couples or single, restricted to those aged between 18 and 59 years, without any pension and self-employment incomes and not in education. The same restrictions apply to the partner of individuals in couples. The final sample includes 1,031 single women, 844 single men and 4088 couples. The restriction of the sample to the “labour market flexible” individuals is common in the literature on behavioural evaluation of tax reforms and is Pag. 6 a 32 motivated by the aim to exclude individuals whose labour choices are affected by factors that are not or cannot be controlled for in the labour supply model. Examples of these factors include disability status, educational choices, early retirement, self-employment and professional activities. Moreover, it is reasonable to assume that for the women included in the sample, the employment decision and the number of hours worked per week are the channels through which they respond to tax reforms, while for self-employed hours of work and employment are not the important margin of response. Figure 1 shows the overall sample distribution by equivalised disposable income deciles and Figure 2 reports the distribution of the individuals in the equivalised disposable income decile groups. From Figure 2 we can see that a relative majority of single women (25%) and single men (20%) belong to the first decile group and a smaller concentration of single men is in the second to sixth decile group. Individuals in couple are distributed more evenly across the income distribution. Figure 1. Sample distribution by income Figure 2. Sample distribution by income deciles deciles and by group Note: Individuals are grouped per households deciles based on equivalised disposable income2. Overall, in our aggregate sample the earnings shares are increasing across income deciles. The eighth and ninth decile have the 15% of the earnings share each. This means that individuals in the upper part of the income distribution face a higher tax increase shares among the different income groups in the total taxes (see Figure 3). Couples have very similar earnings share distributions. Single men group faces a sudden increase in the earnings shares at the sixth income decile whereas the increase in the earnings shares is stepwise for the group of single women with a peak at the eighth decile (see Figure 4). 2 Disposable income is equivalised using the standard OECD equivalence scales, assigning a weight of 1 to the first adult, 0.5 to each subsequent adult and 0.3 to each child aged below 14. Pag. 7 a 32 Figure 3. Earnings shares by income deciles Figure 4. Earnings shares by income deciles and by subsample 3.2 Marginal effective tax rates Marginal effective tax rates (𝑚𝑖 ) measure the incidence of the tax and benefit system on a marginal increase of earnings. They indicate how much of a marginal increase in earnings is taxed away. They can be considered as indicator of the financial incentive for individuals to increase their earnings by increasing the working time or the intensity of work effort. Pag. 8 a 32 In calculating the marginal effective tax rates we follow the approach developed by Jara and Tumino (2013). Marginal effective tax rates are computed taking into consideration taxes paid by, and benefits received by all members of the household. Formally, individual level marginal effective tax rates are calculated as: 𝑚𝑖 = 1 − 0 1 𝑌𝐻𝐻 −𝑌𝐻𝐻 𝐸𝑖1 −𝐸𝑖0 (3) where YHH is the household disposable income and Ei is the individual earnings. Therefore, the numerator measures the change in household disposable income due to the increase in the individual earnings and the denominator is equal to the increase in earnings itself. The marginal tax rate for each individual is computed by increasing earnings of the individual by 3% and measuring the total change in the household taxes and benefits3. Figure 5 plots the marginal effective tax rates across income deciles for our sample. Low income earners are more likely to have relatively low marginal tax rates compared to high income earners. At the bottom of the distribution, marginal effective tax rates are quite low due to the tax reliefs granted to low earnings individuals but they increase quite rapidly also due to Family allowance decreasing with family income. The marginal effective tax rate values are monotonically increasing with a peak of 43 percent at the tenth income decile, as a result of the progressive personal income tax schedule and the social insurance contributions paid by employees. Figure 5. Average marginal effective tax rates by income deciles 3 The extra 3% earnings roughly corresponds to an extra working hour per week assuming a full-time employee working 40 hours per week (Jara and Tumino, 2013). Pag. 9 a 32 If we look at the marginal effective tax rates patterns across our four subsamples (single women, single men, women in couple, and men in couple), as expected the incidence of the tax-benefit system on a marginal increase of earnings for singles women is very similar across income deciles to the incidence for single men (Figure 6). Marginal effective tax rates for men in couple are always higher relatively to marginal effective tax rates of their female partners which are likely to be second earners in the couple and hence facing a lower income tax rate. The difference between the distribution of the marginal effective tax rates for women and men in couple is significant (t-test p-value and MannWhitney tests p-values < 0.05). Figure 6. Average marginal effective tax rates by income deciles and by subsample 3.3 Participation tax rates The participation tax rate (𝜏𝑖 ) is a measure of the monetary attractiveness of working as opposed to not working. To compute the participation tax rate on a given individual, we calculate the difference between the individual disposable income when the individual is working (𝐶𝑖 𝐼𝑊 ) and the individual disposable income if the individual were to exit the labour market (𝐶𝑖 𝑂𝑊 ). We then divide this difference by the gross income from employment (𝑌𝑖 𝐼𝑊 ). Therefore, the individual participation is calculated as: τ𝑖 = 1 − (𝐶𝑖 𝐼𝑊 −𝐶𝑖 𝑂𝑊 ) 𝑌𝑖 𝐼𝑊 (4) Pag. 10 a 32 where superscripts 𝐼𝑊 and 𝑂𝑊 denote the working status in-work and out-of-work respectively, and 𝑌𝑖 𝐼𝑊 is the gross income from employment. Figure 7 shows the pattern of the participation tax rates across income deciles. For low income deciles values are around 57-58%. They tend to increase to 59% from the fifth decile to return again to 57% at the upper income decile. This pattern is consistent with the findings of Immervoll et al. (2005, 2007). Figure 7. Average participation tax rates by income deciles Participation tax rates have been simulated for our four subsamples as well. For single men values are ranging between 55-56 percent across income deciles as shown in Figure 4. Men in couple have a slightly higher participation tax rates distribution, ranging between 57-59 percent. Single women face relatively low participation tax rates at the lower part of the income distribution, then they are increasing when moving to the upper part of the income distribution. Women in couple experience participation tax rates up to 60% at the sixth income deciles (see Figure 8). Pag. 11 a 32 Figure 8. Average participation tax rates by income deciles and by subsample 3.4 Behavioural responses: empirical methodology In order to calculate the extensive and intensive labour supply elasticities we develop a static structural discrete choice model of labour supply following a growing literature (e.g. van Soest, 1995; Blundell et al., 2000). Structural models provide direct estimations of preferences through the specification of the functional form of the utility function. The assumption behind the discrete choice models is that utility-maximising individuals choose from a discrete set of alternatives in terms of working hours to maximise the utility of the household on the basis of ‘preferences’ over hours H and net income Y. At each point in the choice set corresponds a given budget on the basis of the earnings of each individual and the tax-benefit system rules simulated by EUROMOD. Suppose the utility function for a household is given by: U (𝑌, 𝐻 𝑓 , 𝐻 𝑚 ) (5) subject to household income: 𝑌 = 𝐸 𝑓 (𝑤 𝑓 , 𝐻 𝑓 ) + 𝐸 𝑚 (𝑤 𝑚 , 𝐻 𝑚 ) + 𝑁 + 𝐵 (𝐸 𝑓 , 𝐸 𝑚 , 𝑁 | 𝑋) − 𝑡 (𝐸 𝑓 , 𝐸 𝑚 , 𝑁 | 𝑋) where the utility depends on the female 𝐻 𝑓 and male 𝐻 𝑚 hours of work and the household disposable income Y, given earnings of both partners (𝐸 𝑓 , 𝐸 𝑚 ), other income (N) and benefits B and taxes t according to individual and household characteristics X, Other individuals living in the household Pag. 12 a 32 and their behaviour is taken as exogenous as well. Female and male wage rate, 𝑤 𝑓 and 𝑤 𝑚 , are estimated for all the observations of our sample (workers and non-workers) through a Heckman wage equation to take into account the selection bias in the observed working conditions. The two-stage procedure – namely first estimating wage rates and then using them in the labour supply estimations – is common practice (e.g. Creedy and Kalb, 2005; Bargain et al., 2014)4. The choice set of each individual is made up of five j = 0, …., J alternatives, which means J = 5 for singles and J = 5 x 5 for couples, with choices characterised by 0 to 60 hours per week (specifically we have the following five hours range brackets: 1. (0-9), 2. (10-24), 3. (25-34), 4. (35-44), 5. (4560))5. The utility function can be decomposed into a deterministic and a stochastic component: 𝑈𝑗 = 𝑉𝑗 + 𝜖𝑗 (6) for each choice j= 1, …, J, where V is the portion of utility given by the observable characteristics while the error term 𝜖𝑗 captures the portion from unobservable characteristics6. At each alternative j, the realisation of the deterministic part of the utility function (i.e. V j) is given by the following quadratic functional form with fixed costs7 linear in the parameters: 𝑓 𝑓 𝑓 𝑓 𝑉𝑗 = 𝛼𝑌𝑗 + 𝛽𝑌𝑗2 + 𝛾𝐻𝑗 + 𝛿𝐻𝑗𝑚 + 𝜀(𝐻𝑗 )2 + 𝜁(𝐻𝑗𝑚 )2 + 𝜂𝑌𝑗 𝐻𝑗 + 𝜃𝑌𝑗 𝐻𝑗𝑚 + 𝜄𝐻𝑗 𝐻𝑗𝑚 𝑓 −κ 𝑓 (𝐻𝑗 > 0) − κ𝑚 (𝐻𝑗𝑚 > 0) (7) where income (Y) and hours of work (𝐻 𝑓 and 𝐻 𝑚 ) enter in both level and square. Observed heterogeneity, captured by observable characteristics, cannot be identified directly because these characteristics do not vary across alternatives and would be ruled out in the estimation. It enters through the linear utility parameters: 𝛼 = 𝛼0 + 𝛼1 ′𝑋 (8) γ = γ0 + γ1 ′𝑋 (9) 𝛿 = 𝛿0 + 𝛿1 ′𝑋 (10) 4 See Table 1 and 2 in Appendix for estimates of the wage equation. We checked the sensitivity of our results to alternative definition of the choice set. 6 Error terms are also assumed to represent possible observational errors, optimization errors, or transitory errors. 7 Fixed costs improve the fit of the model estimated as model parameters as in Callan, van Soest, and Walsh (2009) or Blundell et al (2000). These costs, denoted κ𝑓 and κ𝑚 , are nonzero for positive hour choices and depend on observed characteristics (for example, the presence of young children). 5 Pag. 13 a 32 allowing marginal utilities of income (Y) and hours of work (𝐻 𝑓 and 𝐻 𝑚 ) to depend on a vector of family characteristics (X) including polynomial form of age, education level, region, and presence of children. Assuming that the error terms is independently and identically distributed across alternatives and households according to the Extreme Value Type I distribution, the (conditional) probability of choosing the alternative k is given by the following logit expression (McFadden, 1974)8: 𝑃𝑟𝑘 = exp(𝑈𝑘 ) ∑𝑗 exp(𝑈𝑘 ) 𝑘 ∈𝐽 (7) The parameters, estimated using Maximum simulated Likelihood, are shown in Tables 3, 4 and 5 respectively for couples, single women, and single men in the Appendix. 3.4.1 Labour Supply Elasticities at the Extensive and Intensive Margins Labour supply elasticities are calculated using the estimated model and predicting the change in working hours and participation rates following a marginal uniform increase in wage rates of 10% . The intensive margin elasticity 𝜀𝑖 corresponds to the response in work hours among workers, and the extensive margin elasticity 𝜂𝑖 to the participation response (measured in percent change in work hour). The choice an individual faces follows in fact the probability rule Pr(choice=k) = Pr[U(H fk) > U(Hfj)] k ≠ j, j = 1,…, J according to which the probability that an individual chooses the alternative k is equal to the probability that the utility associated with the choice k is larger than the utility associated with any other choice j. 8 Pag. 14 a 32 Figure 9. Extensive and Intensive elasticities by income deciles Figure 10. Extensive and Intensive elasticities by income deciles and by subsample Pag. 15 a 32 4. Results By using the information presented above to compute formula (2) for the whole sample, we get an aggregate marginal cost of public funds equal to 1.116. This implies that the efficiency costs of raising an extra unit of government revenue is 0.12 (MCF – 1). However, from the information presented above, the heterogeneity of the four subsamples emerges as a striking feature of our data and our approach based on micro data representative of the national population allow us to take it fully into account. The MCF value computed for each subgroup are in Table 4. Table 4. MCF values by gender and status Female Male Single 1.1308 1.0386 Couple 1.1603 1.0556 For women, both single or in couple, the MCF is higher than men: this is mainly due to higher elasticities values. Women in couple have the highest MCF whereas the lowest cost of distortion of a tax reform refers to single men. Therefore, specific values for subgroups of MCF suggest that for the same tax-benefit system women (both single and in couple) face a more inefficient system compared to men (both single and in couple). The robustness of the MCF based on stylised parameters In order to test the impact of individual heterogeneity on the MCF we substitute our labour supply elasticities with the stylised values used by Kleven and Kreiner (2006) and reported in the Table 3 in the Appendix. For the intensive elasticity, they assume that it is constant across earnings deciles and small (0 or 0.1). For the extensive elasticity, based on available evidence, they assume it is higher for those in the lower part of the income distribution and then decreasing with income, with values between 0.8 and 0.3 at the bottom of the distribution and zero elasticities at the top. Table 4 in the Appendix reports the results of the MCF for our aggregate data using the stylized elasticities of the five scenarios proposed by Kleven and Kreiner (2006). The use of stylized elasticities make the aggregate MCF measure to vary from 1.111 to 1.344. However, although we observe a 21% of variation, the MCF obtained with the elasticities derived by our empirical data (1.116) is yet in the range of the MCF values computed by using the elasticities Pag. 16 a 32 scenarios (Figure 11). This is not always true when we look at the MCF measures for subgroups. For men in couple, single men, and women in couple the MCF computed with empirical elasticities is either higher or lower than the maximum/minimum MCF value calculated by using the elasticities scenarios. Specifically, when using the stylized elasticities the MCF measure varies of 25-26% for single women (from 1.133 to 1.423) and for men in couple (from 1.146 to 1.445). The MCF value varies of 22% for single men (from 1.122 to 1.365) and 17% for women in couple (from 1.083 to 1.270). Figure 11. Aggregate MCF calculated using different elasticities scenarios Only for the subgroup of “women in couple” the MCF measure obtained with the elasticities derived by our empirical data is in the range of the MCF values computed by using the elasticities scenarios (Figure 12)9. Table 5 in the Appendix shows the MCF values computed by using the elasticities scenarios for our subgroups. This indicates the importance of taking into account the specificities of the different sub group of the population and a potential lack of robustness of the MCF indicator based on stylised values in order to reach policy conclusions. 9 Although we can consider the MCF value for single women obtained with the elasticities derived by our empirical data (1.131) in the range of the MCF values computed by using the elasticities scenarios as well since the minimum value of the range is 1.133. Pag. 17 a 32 Figure 12. MCF by subsamples calculated using different elasticities scenarios Redistributive effects of a reform on income on the MCF We apply an increment of the individual income in order to measure the redistributive effects of a reform on income and the consequent effects on our empirical efficiency measure of the MCF. Specifically, we increase individual earnings of a constant amount, Euros 80. This structural reform has been implemented in Italy during the Renzi government. Hence, we proceed with a second stage of microsimulations, which consider the tax-benefit system and provide a new level of disposable income. Therefore, we calculate the earnings shares, the marginal effective tax rates, and the participation tax rates at the aggregate level and by subsamples. In the calculation of the new MCF values we use the same labour supply elasticities at the intensive and extensive margins because we assume individual preferences as fixed. Table 5 shows the MCF values post reform at the aggregate level and by subsamples. Moreover, it shows how the MCF values change when we use the stylized elasticities of the five scenarios presented by Kleven and Kreiner (2006). At the aggregate level, the MCF is 1.119, very similar to its pre-reform value. For women the MCF is higher than men. Single women face a more inefficient system compared to men (both single and in couple). The lower Pag. 18 a 32 distortion of the tax reform refers to single men whose MCF is 1.040. We find, therefore, the same pattern of results. The use of stylized elasticities make the aggregate MCF measure to vary from 1.115 to 1.348. The MCF obtained with the elasticities derived by our empirical data (1.119) is yet in the range of the MCF values computed by using the elasticities scenarios. However, for men (both single and in couple) we observe that MCF measure obtained with the elasticities derived by our empirical data is not in the range of the MCF values computed by using the elasticities scenarios. Our empirical MCF values are lower of the minimum MCF values obtained by using stylized elasticities. This implies a higher accuracy and robustness of the empirical MCF indicator. Table 5. MCF calculation post reform Elasticities scenarios MCF Aggregate data Scenario 1 1.1446 Scenario 2 1.1654 Scenario 3 1.1695 Scenario 4 1.1150 Scenario 5 1.3481 Our empirical elasticities 1.1196 Single Women Scenario 1 1.1759 Scenario 2 1.1998 Scenario 3 1.2137 Scenario 4 1.1416 Scenario 5 1.4336 Our empirical elasticities 1.1339 Single Men Scenario 1 1.1392 Scenario 2 1.2019 Scenario 3 1.1798 Scenario 4 1.1296 Scenario 5 1.3744 Our empirical elasticities 1.0405 Women in Couple Scenario 1 1.1181 Scenario 2 1.1247 Pag. 19 a 32 Scenario 3 1.1245 Scenario 4 1.0830 Scenario 5 1.2626 Our empirical elasticities 1.1600 Men in Couple Scenario 1 1.1801 Scenario 2 1.2116 Scenario 3 1.2283 Scenario 4 1.1544 Scenario 5 1.4651 Our empirical elasticities 1.0583 5. Discussion and conclusion This paper builds a marginal cost of public funds indicator fully based on empirical micro data representative of the population. Specifically, in this work the indicator measures the efficiency of the 2009 Italian tax-benefit system calculated for a sample of nearly six thousands households. By using EUROMOD, values of marginal effective tax rates, participation tax rates, and earnings shares have been simulated. Following the Kleven and Kreiner (2006) theoretical framework, the simulated static results have been combined with intensive and extensive labour supply elasticities in order to take into consideration both worked hours among workers and labour market participation in the MCF calculation. Results show that the aggregate marginal cost of public funds is equal to 1.201, implying an efficiency costs of raising an extra unit of government revenue of 0.201. The inefficiency of the Italian 2009 tax-benefit system can be better explained by the marginal cost of public funds calculated for four subsamples (single women, single men, married women, and married men). Higher MCF values show that a higher costs of distortion of the tax-benefit system for women compared to men. For example, for married women there is an efficiency cost of 0.16, the highest MCF value among those of the four subsamples. This welfare loss can be due to the high extensive elasticities that married women present. Married women face relatively lower values of marginal effective tax rates (at least at the lower part of the income distribution) compared to men in couple and singles, meaning that a lower proportion of a marginal increase in their earnings is taxed away. Married women have a high Pag. 20 a 32 propensity to enter the labour market as indicated by a high participation tax rate compared to the other three workers subsamples. Compared to married workers, single women have negative extensive elasticities between the third and fifth deciles. However, parametric and non-parametric tests show that there is no significant difference between the distribution of extensive elasticities of single women compared to the distributions of extensive elasticities of the other subgroups. Single women have lower intensive elasticities compared to women in couple (t-test and Mann-Whitney tests p-values < 0.05) and this might explain a lower MCF with respect to the MCF of married women. A test the sensitivity of our micro-data based indicator with respect to those by Kleven and Kreiner (2006) based on stylised and hypothetical measures of work incentives was run. The aggregate marginal cost of public funds can vary of 21%. For single women and men in couple MCF can vary up to 26%. For single workers and for married women the MCF value calculated using our empirical elasticities is not even in the range of MCF values obtained by using hypothetical elasticities. 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(1995) Structural models of family labour supply. A discrete choice approach. The Journal of Human Resources 30: 63–88. Wildasin, D.E., 1984. On public good provision with distortionary taxation. Economic Inquiry 32,227–243. Pag. 24 a 32 APPENDIX Table 1. Wage Estimation: Women Coefficient Robust Standard Error P-value Age 0.800 0.4331 0.065 Age square -0.143 0.1107 0.195 Age cubic 0.010 0.0092 0.282 Education middle 0.304 0.0349 0.000 Education high 0.546 0.0387 0.000 In couple 0.041 0.0250 0.102 -0.010 0.0031 0.002 Number of children 0.016 0.0148 0.259 Number of children 0-2 0.016 0.0368 0.652 Constant 2.938 0.5659 0.000 Age 2.399 0.7928 0.002 Age square -0.386 0.2053 0.060 Age cubic 0.015 0.0170 0.392 Education middle 0.660 0.0408 0.000 Education high 1.030 0.0614 0.000 In couple -0.407 0.0484 0.000 Region -0.095 0.0047 0.000 Children 0-2 -0.268 0.0727 0.000 Children 3-6 -0.289 0.0607 0.000 Children 7-12 -0.245 0.0508 0.000 Children 13-17 -0.123 0.0527 0.019 Children 18+ 0.072 0.0592 0.225 Other income -0.024 0.0086 0.006 Constant -3.132 0.9772 0.001 Rho 0.019 0.0343 0.573 Sigma -0.605 0.0543 0.000 Observations 8449 Log wage Region Participation Pag. 25 a 32 Table 2. Wage Estimation: Men Coefficient Robust Standard Error P-value Age 1.094 0.3259 0.001 Age square -0.199 0.0868 0.022 Age cubic 0.013 0.0074 0.071 Education middle 0.226 0.0194 0.000 Education high 0.527 0.0294 0.000 In couple 0.025 0.0221 0.259 Region -0.027 0.0030 0.000 Number of children 0.022 0.0115 0.058 Number of children 0-2 -0.031 0.0315 0.330 Constant 2.722 0.3906 0.000 Age 3.734 0.8368 0.000 Age square -0.823 0.2275 0.000 Age cubic 0.059 0.0197 0.003 Education middle 0.336 0.0490 0.000 Education high 0.380 0.0821 0.000 In couple 0.396 0.0679 0.000 Region -0.103 0.0073 0.000 Children 0-2 0.005 0.1018 0.958 Children 3-6 0.085 0.0879 0.336 Children 7-12 0.147 0.0755 0.052 Children 13-17 -0.045 0.0798 0.570 Children 18+ 0.102 0.1009 0.312 Other income -0.015 0.0120 0.221 Constant -4.095 0.9740 0.000 Rho 0.019 0.0143 0.180 Sigma -0.628 0.0458 0.000 Observations 7480 Log wage Participation Pag. 26 a 32 Table 3. Labour Supply Estimation: Couples Coefficient Robust Standard Error P-value -0.0002 0.0000 0.009 Income 0.001 0.0007 0.048 Hm 1.032 0.0470 0.000 0.259 0.0335 0.000 0.353 0.1051 0.001 Hm Square -14.127 0.3560 0.000 Hf Square -5.667 0.2432 0.000 Hm x Income -0.001 0.0015 0.554 Hf x Income 0.001 0.0010 0.226 Spouses’ mean Age x Income -0.000 0.0003 0.125 Spouses’ mean Age square x Income 0.000 0.0000 0.108 Number of children x Income 0.000 0.0000 0.638 Hm x male age 0.063 0.0178 0.000 Hm x male age square -0.007 0.0020 0.000 Hf x female age 0.065 0.0146 0.000 H x female age square -0.008 0.0018 0.000 Hm x number of children 0.003 0.0034 0.342 Hf x 1(children 0-2) 0.008 0.0073 0.249 Hf x 1(children 3-6) -0.012 0.0028 0.000 Hf x 1(children 7-12) -0.015 0.0027 0.000 H x 1(children 13-17) -0.009 0.0027 0.001 Hm x 1(region) -0.023 0.0026 0.000 Hf x 1(region) -0.035 0.0020 0.000 Fixed cost (FC) for male labour 22.477 0.6189 0.000 FC for male labour x n. of children 0.077 0.1394 0.579 FC for male labour x 1(children 0-2) 0.117 0.1738 0.501 Fixed cost (FC) for female labour 7.294 0.3017 0.000 FC for female labour x n. of children -0.086 0.0696 0.215 FC for female labour x 1(children 0-2) 0.513 0.2731 0.060 Income Square Hf m H xH f f f Log-likelihood Pseudo R2 Observations -9862.8699 0.2505 4088 Pag. 27 a 32 Table 4. Labour Supply Estimation: Single Women Coefficient Robust Standard Error P-value Income Square 0.0005 0.0003 0.154 Income 0.0006 0.0017 0.720 Hours 0.399 0.0752 0.000 Hours Square -6.176 0.4675 0.000 Hours x Income -0.021 0.0053 0.000 Age x Income 0.000 0.0008 0.904 Age square x Income 0.000 0.0001 0.994 Number of children x Income -0.000 0.0001 0.000 Hours x age 0.057 0.0346 0.096 Hours x age square -0.007 0.0043 0.089 Hours x 1(children 0-2) -0.067 0.0239 0.005 Hours x 1(children 3-6) -0.016 0.0077 0.041 Hours x 1(region) -0.033 0.0045 0.000 Fixed cost (FC) 9.590 0.6394 0.000 FC x n. of children -0.436 0.1999 0.029 FC x 1(children 0-2) -1.684 0.8574 0.049 Coefficient Robust Standard Error P-value Income Square -0.0000 0.0006 0.923 Income -0.0010 0.0018 0.576 Hours 0.9949 0.0964 0.000 Hours Square -13.0887 0.7986 0.000 Hours x Income -0.0062 0.0096 0.518 Age x Income 0.0007 0.0009 0.420 Age square x Income -0.0001 0.0001 0.431 Number of children x Income 0.0000 0.0003 0.939 Hours x age 0.0483 0.0403 0.231 Hours x age square -0.0066 0.0050 0.188 Log-likelihood Pseudo R2 Observations -1433.9093 0.1359 1031 Table 5. Labour Supply Estimation: Single Men Pag. 28 a 32 Hours x 1(children 0-2) -0.0183 0.1197 0.878 Hours x 1(children 3-6) 0.0749 0.0982 0.445 Hours x 1(region) -0.0295 0.0050 0.000 Fixed cost (FC) 20.772 1.2162 0.000 FC x n. of children -0.8203 0.8613 0.341 FC x 1(children 0-2) -11.6082 616.374 0.985 Log-likelihood Pseudo R2 Observations -963.23904 0.2909 844 Pag. 29 a 32 Table 6. Key variables values for aggregate data by income deciles Income Deciles 1 2 3 4 𝑠𝑖 0.042 0.055 0.081 0.079 𝑚𝑖 𝜏𝑖 𝜂𝑖 𝜀𝑖 0.122 0.252 0.272 0.564 0.567 0.568 0.076 0.079 0.063 0.073 5 6 7 8 9 10 0.095 0.097 0.132 0.147 0.150 0.122 0.287 0.330 0.367 0.398 0.414 0.418 0.428 0.576 0.576 0.590 0.585 0.585 0.577 0.577 0.077 0.072 0.061 0.072 0.059 0.102 0.059 0.081 0.071 0.067 0.066 0.064 0.060 0.064 0.061 0.058 Aggregate Data Table 7. MCF parameters values for subsamples by income deciles Income Deciles 1 2 3 4 𝑠𝑖 0.070 0.076 0.059 0.077 𝑚𝑖 𝜏𝑖 𝜂𝑖 𝜀𝑖 0.125 0.314 0.361 0.555 0.551 0.560 0.025 0.008 0.031 0.010 5 6 7 8 9 10 0.122 0.118 0.118 0.148 0.130 0.082 0.373 0.407 0.393 0.419 0.418 0.430 0.458 0.565 0.570 0.567 0.574 0.583 0.575 0.563 -0.027 0.010 -0.053 0.126 0.078 0.506 0.000 0.000 -0.011 -0.012 0.025 0.032 0.030 0.070 0.055 0.049 Single Women Single Men 𝑠𝑖 0.058 0.043 0.044 0.024 0.091 0.139 0.158 0.131 0.156 0.155 𝑚𝑖 𝜏𝑖 𝜂𝑖 0.130 0.332 0.407 0.402 0.424 0.427 0.427 0.427 0.448 0.451 0.567 0.563 0.573 0.570 0.571 0.570 0.557 0.568 0.555 0.561 0.036 0.033 0.017 0.034 0.050 0.026 0.000 0.019 0.000 0.000 𝜀𝑖 0.022 0.027 0.028 0.028 0.030 0.027 0.033 0.034 0.032 0.035 𝑠𝑖 0.038 0.054 0.085 0.082 0.093 0.092 0.132 0.149 0.152 0.124 𝑚𝑖 𝜏𝑖 𝜂𝑖 0.062 0.099 0.109 0.123 0.184 0.266 0.333 0.373 0.378 0.391 0.543 0.571 0.571 0.591 0.583 0.601 0.594 0.591 0.585 0.587 0.155 0.146 0.137 0.126 0.111 0.114 0.102 0.100 0.107 0.124 𝜀𝑖 0.119 0.127 0.118 0.117 0.116 0.113 0.105 0.106 0.103 0.096 Women in couple Men in couple 𝑠𝑖 0.038 0.055 0.087 0.084 0.094 0.092 0.131 0.147 0.150 0.122 𝑚𝑖 𝜏𝑖 𝜂𝑖 0.176 0.379 0.414 0.428 0.441 0.449 0.449 0.451 0.448 0.454 0.576 0.570 0.568 0.573 0.576 0.592 0.587 0.585 0.575 0.574 0.044 0.036 0.036 0.033 0.041 0.026 0.013 0.034 0.012 0.038 𝜀𝑖 0.044 0.041 0.039 0.036 0.032 0.031 0.028 0.028 0.027 0.028 Pag. 30 a 32 Table 8. Kleven and Kreiner’s elasticities scenarios Income 1 deciles 2 3 4 5 6 7 8 9 10 Scenario 1 𝜂𝑖 0.4 0.4 0.3 0.3 0.2 0.2 0.1 0.1 0.0 0.0 𝜀𝑖 0.0 0.0 0.0 0.0 0.0 0.0 0.0 0.0 0.0 0.0 Scenario 2 𝜂𝑖 0.4 0.4 0.3 0.3 0.2 0.2 0.1 0.1 0.0 0.0 𝜀𝑖 0.1 0.1 0.1 0.1 0.1 0.1 0.1 0.1 0.1 0.1 Scenario 3 𝜂𝑖 0.8 0.6 0.4 0.2 0.0 0.0 0.0 0.0 0.0 0.0 𝜀𝑖 0.1 0.1 0.1 0.1 0.1 0.1 0.1 0.1 0.1 0.1 Scenario 4 𝜂𝑖 0.4 0.3 0.2 0.1 0.0 0.0 0.0 0.0 0.0 0.0 𝜀𝑖 0.1 0.1 0.1 0.1 0.1 0.1 0.1 0.1 0.1 0.1 Scenario 5 𝜂𝑖 0.6 0.6 0.4 0.4 0.3 0.3 0.2 0.2 0.0 0.0 𝜀𝑖 0.1 0.1 0.1 0.1 0.1 0.1 0.1 0.1 0.1 0.1 Table 9. MCF calculation by using the Kleven and Kreiner’s elasticties scenarios and our empirical elasticities Elasticities scenarios MCF Scenario 1 1.1459 Scenario 2 1.1617 Scenario 3 1.1660 Scenario 4 1.1113 Scenario 5 1.3447 Our empirical elasticities 1.1161 Pag. 31 a 32 Table 10. MCF calculation by subsamples Elasticities scenarios MCF Single Women Scenario 1 1.1773 Scenario 2 1.2737 Scenario 3 1.2065 Scenario 4 1.1334 Scenario 5 1.4232 Our empirical elasticities 1.1308 Single Men Scenario 1 1.1407 Scenario 2 1.2423 Scenario 3 1.1701 Scenario 4 1.1217 Scenario 5 1.3654 Our empirical elasticities 1.0386 Women in Couple Scenario 1 1.1227 Scenario 2 1.1770 Scenario 3 1.1258 Scenario 4 1.0827 Scenario 5 1.2698 Our empirical elasticities 1.1603 Men in Couple Scenario 1 1.1767 Scenario 2 1.2932 Scenario 3 1.2177 Scenario 4 1.1463 Scenario 5 1.4454 Our empirical elasticities 1.0556 Pag. 32 a 32
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