Economic Update (May 2001)
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Presentation
by the Honourable Paul Martin, P.C., M.P.
to the House of Commons
Standing Committee on Finance
May 17, 2001
Delivered text is official version.
Thank you, Mr. Chairman, and let me thank the committee for this opportunity
to appear before you today.
In the months leading up to today’s Update, I have had the opportunity to
participate in extensive discussions on the global economy with the G-7 and G-20
finance ministers, the International Monetary Fund and the World Bank; on
the North American economy with members of the business community from both
sides of the border; and on our economy with a group of key Canadian economists.
Most importantly, since January, I have travelled to every region of the
country, meeting with Canadians, participating in informal consultations, town
hall meetings and locally based roundtables. In one community after another, the
participants were kind enough to share their ideas, their insights, their hopes
and concerns, and I want to thank all of those who took the time to do so.
Sometimes, in analyzing data, it is easy to get caught up in the language of
economists and statisticians, but we must never forget that while economic
activity is reported in numbers, it is experienced in the lives of Canadian
families. After all, the "the economy" is not some abstract concept
– "out there," "somewhere," "some time." It is
the fabric of everyday life; it is the plans people make, the confidence
they have and the activities they enjoy.
So it is certainly understandable that when Canadians speak about the economy
it is not in the language of rates and ratios. They speak of affording a home,
buying groceries or planning their children’s education. They talk about their
wish for a secure retirement and a health care system that’s there when they
need it. They also speak of the need to direct the economic strength of our
nation to improving the lives of our people. They tell us that economic growth
must be aimed at a higher purpose. And that is why a balanced approach is as
important as a balanced budget.
Most Canadians I met expressed their confidence in the overall direction of
our economy but, naturally, they were concerned about how the current slowdown,
which started in the U.S., will affect them and their families. Today I want to
speak to those concerns. Specifically, I want to update Canadians on how the
global changes that have taken place since last October’s Statement have
affected our nation’s finances and our economic prospects, and to outline the
measures we are taking to support growth.
Let me begin with the broader international picture.
For an open economy like Canada’s, with more than 40 per cent of our
gross domestic product (GDP) generated by exports, what happens outside our
borders has a direct impact on what happens inside.
At its meetings last month, the International Monetary Fund said that
short-term prospects for global growth have weakened and, as a result,
projections for growth were lowered from 4.2 per cent to 3.2 per cent
for this year. In Europe the pace of economic activity has slowed and is below
potential. In Japan, the world’s second largest economy, low consumer
confidence and fundamental problems in the financial system continue to prevent
a sustained recovery.
United States’ Economic Situation
In the United States – the economy that affects us most – the slowdown
has turned out to be steeper than expected. The U.S. economy started last
year growing at an annual rate of 5 per cent, but by the final quarter it
was growing at just 1 per cent.
While preliminary estimates for the first quarter of this year show some
improvement, the near-term outlook remains unclear. Indeed, the most recent
labour force statistics, which showed a decline in U.S. employment, point to
this uncertainty. Private sector economists are now projecting that growth in
the U.S. will average 2 per cent in 2001. This reflects the widely held
view that significantly lower interest rates will pave the way for renewed
growth this year. We hope that proves to be the case. But we remain cautious and
are taking nothing for granted.
Current State of the Canadian Economy
Clearly, the Canadian economy is feeling the effects of the weaker U.S.
economy. Growth here in the final quarter of last year was considerably less
than in the preceding quarter, primarily reflecting much slower activity in the
automobile industry and in the information and communications technology sector.
Both industries, which depend heavily on exports, have faced falling demand from
the U.S. In response, both have had to cut back production to deal
with excess inventories. These actions, in turn, have had their effect on
the Canadian economy, postponing investment decisions and reducing near-term
growth.
At the same time, however, there have been a number of encouraging
developments which have helped to offset this weakness.
First, other export-oriented Canadian industries, such as aerospace and
energy, have continued to grow at a strong pace. Service industries and
construction – particularly the housing sector – which are domestically
oriented, have also continued their solid performance. This strength in
services, aerospace, energy and construction is important because together they
produce more than 75 per cent of Canada’s total economic output.
Second, Canada’s external balance has improved substantially – from a
deficit of $28 billion in 1993 to a surplus of $19 billion in 2000.
This, in turn, has resulted in a sharp decline in our foreign indebtedness
– from 44 per cent of GDP in 1993 to 23 per cent last year, its
lowest level since the early 1950s. This decline in foreign indebtedness
is significant. Reducing the amount of money that we pay to international
creditors gives us greater flexibility to manage our own affairs and keep
interest rates low. This is all the more welcome in today’s uncertain global
environment.
Third, and most importantly, employment continues to grow and Canadians are
beginning to see their disposable income rise again. This, combined with large
tax cuts and lower interest rates, is supporting solid consumer spending this
year.
Mr. Chairman, given the mixed signals on the health of the economy, it is not
surprising that there are differing perceptions about its present state. What is
important is to put these differing opinions into context. In summary, what
is clear is that all of the available facts and figures show that, albeit
at a slower pace than last year, the longest Canadian economic expansion
since the 1960s – some 22 quarters of growth – is continuing.
Since taking office in 1993 we have consistently budgeted on a rolling
two-year basis. Given the uncertainty inherent in long-term projections, this
approach has served us well in the past and will do so again in the future. As
part of this approach, the Department of Finance surveys some 19 private
sector forecasters to obtain their best estimates of the economic outlook. Based
on that survey, we then meet with the chief economists of Canada’s major
chartered banks and four leading forecasting firms to make doubly sure that the
average of private sector forecasts is a reasonable basis upon which to plan.
This approach ensures that the assumptions we use are realistic and
credible.
In preparation for this Update, we have again conducted this process.
Mr. Chairman, looking ahead to the next two years, the economists have
projected that while the deceleration in economic growth is sharper than
previously anticipated, the economy will continue to expand. Where there is
less agreement is on the extent of that growth. Indeed, the forecasts for 2001
range from a high of 2.8 per cent to a low of 1.6 per cent, with an
average of 2.4 per cent. For next year, 2002, the economists expect a
rebound, with forecasts ranging from growth of 2.5 per cent to 4 per
cent, with an average of 3.4 per cent.
The question is: What do these forecasts mean for the finances of the nation?
Specifically, what do they mean for our projections of balanced budgets? For the
tax cuts promised in Budget 2000 and in the October Statement? For the
Health Accord reached with the provinces and territories last year?
Let me begin by reminding you of the situation at the time of the
October Statement and what we had projected for each of the next two years.
In October, after funding our tax cuts and expenditures such as the Health
Accord, we projected a total surplus of $8.3 billion for 2001-2002.
This was made up of $4.3 billion in unallocated surplus – to cover
priorities such as those outlined in the Red Book – the $3-billion
Contingency Reserve and $1 billion in economic prudence.
Based on the revised average of the private sector forecasts of 2.4-per-cent
growth in 2001, offset by lower interest rates and the ongoing impact of
higher-than-expected revenues last year, the budgetary balance will decline by
$1.1 billion. This leaves a surplus for the current fiscal year of
$7.2 billion for prudence, to cover our $3-billion Contingency Reserve and
to deal with policy measures, of which $600 million has been committed to
date.
For 2002-2003 we projected a total surplus of $7.6 billion. This was
made up of $2.6 billion in unallocated surplus, the $3-billion Contingency
Reserve and $2 billion in economic prudence. Using the revised average of
the private sector forecasts of 3.4-per-cent growth for 2002, and again taking
into account similar offsets, the budgetary balance will decline by
$300 million. This leaves a surplus for 2002-2003 of $7.3 billion for
prudence, the Contingency Reserve and policy measures, of which
$400 million has been committed.
Mr. Chairman, let me go one step further. The aforementioned numbers are
derived from the average of the total range of private sector forecasts. Let me
now use the average of the most pessimistic of the private sector forecasts.
Even here – 1.8-per-cent growth in 2001 and 2.9-per-cent growth in 2002
– the net impact would result in an adjusted budgetary surplus of
$6.2 billion this year and $5.1 billion next year. In other words,
Mr. Chairman, despite the economic slowdown, and even assuming the more
pessimistic average private sector forecast, the Health Accord is protected; the
$100 billion in tax cuts is protected. And we will not fall back into
deficit. This is the payoff for the prudent approach we have adopted from the
beginning.
In the past some have suggested that we were being overly cautious. However,
we have never assumed that the business cycle had been abolished. We have always
believed that it is better to prepare for rain, even in the sunniest of
forecasts. Now that clouds have appeared, Canada has not been caught
unprepared.
Mr. Chairman, that being said, while our fiscal situation allows us to ride
out the current economic slowdown, we are very conscious of the reality that
many Canadians are feeling its effects. It is of little comfort to them to
hear that the Government is doing fine. They need to know that we have acted –
and continue to act – in ways that will benefit them.
Actions Supporting the Canadian Economy
In the February 2000 budget and the October Statement, we outlined
a number of actions which are part of our ongoing strategy to protect Canadians,
a strategy to invest in the social fabric of our country, reduce taxes and
pay down debt. These actions are not only the kind of initiatives that will
contribute to the long-term strength of our economy – they also provide
stimulus in the short term when we need it now, by putting more money into the
hands of Canadians, by spurring business, sparking investment and creating jobs.
First and foremost, there are tax cuts – the largest in Canadian history.
Last October we reduced the tax on capital gains and increased the
investment amount for tax-free rollovers. In January we took a second step
in creating a new Canadian advantage for investment and job creation. We cut
corporate income tax rates by one percentage point, and further cuts – two
points in each of the next three years – will bring corporate rates below
levels in the U.S. Because these corporate tax cuts are being fully legislated,
businesses can – and should – factor them into their investment plans
starting immediately.
In terms of personal income taxes, our actions have been even more dramatic.
In January of this year we reduced taxes at all income levels –
21 per cent on average – putting more money into the hands of Canadians,
especially moderate-income families with children. As well, the earlier
reintroduction of indexation increased personal credits and tax brackets so that
taxpayers will be forever protected from inflation. And finally,
in July a further $900-million stimulus will come with the increase in
the Canada Child Tax Benefit, bringing significant help to families with
children.
What do all of these tax measures mean for Canadians?
A typical two-earner family of four with a combined income of $60,000 will
see its federal taxes drop by $1,000 this year – an 18-per-cent tax cut. A
single parent with one child and $25,000 in income is receiving an additional
$800 this year, for a total benefit of $2,500. Mr. Chairman, this year
alone these tax measures will provide the Canadian economy with $17 billion
in added stimulus.
Furthermore, in addition to the tax reductions, which are largely focused on
middle- and low-income earners, a number of strategic investments are being made
in areas that are also of great importance to Canadians – areas like health
care, education and innovation.
As mentioned earlier, last September the federal, provincial and
territorial governments signed a five-year Health Accord, to which the
Canadian government contributed $21.1 billion. This included
$2.2 billion for early childhood development, which will help to
ensure that our children get the best possible start in life, arriving at school
ready to learn and equipped to succeed. This year, as a result of the Accord,
the Canadian government will provide an additional $2.8 billion to the
provinces and territories for health, education and children. In addition,
$1 billion has just been provided to the provinces and territories to
purchase medical equipment, along with $500 million for investments in
health information technology and $200 million per year for each of
the next four years for the Health Transition Fund, which supports
innovation in primary health care reform.
A further $800 million in equalization payments will flow this year as a
result of the lifting of the ceiling for 1999-2000. This is in addition to
the recently announced $1-billion increase in equalization payments for
2000-2001.
Mr. Chairman, in Budget 2000, we announced a five-year program consisting of
$2 billion for infrastructure, particularly in the area of the environment,
and $600 million for highways. Because this funding will be provided
on a cost-shared basis, it will leverage more than $6 billion for
infrastructure and $1.2 billion for highways. These investments will
benefit communities right across Canada. Agreements on the infrastructure
portion have now been reached with all of the provinces and two of the three
territories. As a result, we expect more than $1 billion in new capital
investment this year alone.
One of the most consistent threads that has run through our policies in
recent years has been a recognition that innovation is key both to the strength
of our economy and to the quality of our lives. Budget 2000 and the
October Statement built on that imperative, making large, long-term
investments in the knowledge infrastructure of our country – our universities
and research institutes. Thus, this year alone $500 million will be
injected into the economy through the Canada Foundation for Innovation, Genome
Canada and the Atlantic Investment Partnership.
Mr. Chairman, taken together, all of the expenditure initiatives announced in
Budget 2000 and the October Statement amount to almost $7 billion
in stimulus for the Canadian economy this fiscal year. When combined with
the $17 billion in tax measures, the total impact this year alone will be
close to $24 billion – this is one of the most,
if not the most, stimulative packages introduced into its economy by
any government of a major industrialized country this year.
Finally and very significantly, reinforcing these fiscal actions have been
the steps taken by the Bank of Canada to lower interest rates. The Bank
Rate has fallen by a full percentage point in the last four months alone,
providing real relief to Canadian families. One-year mortgage rates, for
example, have fallen significantly since last December. This means it is
easier for young couples to buy that first home or for families to trade
up to a larger one. It means cars and other major items are less expensive
to finance and it means lower borrowing costs for those wanting to start or
expand their businesses.
Mr. Chairman, so far I have talked about the state of the economy, the impact
the current slowdown is having on our finances and some of the measures we
are taking to stimulate growth. Looking ahead to the longer term and to the
underlying fundamentals of our economy, let me now address two other issues.
First, the anchor of a low interest rate policy is the establishment of a
low-inflation regime. The Bank of Canada and the federal government have
achieved success in this respect through three-year agreements on inflation
targets. The existing agreement is due to expire this year. To maintain low
inflation, lower interest rates and continued growth, I am pleased to
announce today that we have agreed with the Bank of Canada not only
to extend the current agreement on inflation targets, but to do so for five
years. That means our target range for inflation will remain between 1 per
cent and 3 per cent. Maintaining these targets will allow markets and
investors to plan with confidence, knowing that Canada will remain a
low-inflation environment.
Second, in terms of the national debt, Canada has reduced its federal
debt-to-GDP ratio from a peak of 71 per cent in 1995-1996 to below
53 per cent at the end of last year. In recent years no country has reduced
this ratio as much as Canada. Furthermore, in absolute terms, we have paid down
the federal debt at an unparalleled pace. When times are slow, the rate of debt
reduction will naturally slow, but when times are good – as they were
last year – we should take advantage of that fact to reduce the burden on
future generations.
In the October Statement, the Government committed to paying down at
least $10 billion of debt. Because our revenues were higher than expected,
I am pleased to announce today that we will do better than that. We now expect
to pay down at least $15 billion of debt for the year just ended. This
means that we will have retired more than $33 billion of debt in the
last four years – $27 billion in the last two years alone – saving
Canadians close to $2 billion a year in interest payments – money that
can be used for other priorities such as health care and education, year in and
year out.
Mr. Chairman, let me just say in closing, that the global economy is slowing
is clear. Our job is to enable Canadians to ride through the downturns and
to take advantage of the upturns. Therefore, we will continue to report to
Canadians on the trends. And let there be no doubt, we will remain
vigilant.
However, there are those who say that to counter the slowdown now we should
cut taxes more or that we should spend more. In other words, that we should take
the chance of going back into deficit. Well, that we will not do. We will not
put at risk all that Canadians have worked so hard to achieve over the past few
years. Rather, we will maintain the approach that has seen us through the peso
crisis of 1994 and the Asian crisis of 1997, and which will see us through the
current slowdown.
Looking ahead, our long-term plan means we will continue to cut taxes, it
means we will continue to cut debt and it means we will continue to control
spending. But as well, it means we will never forget that in the knowledge
economy, the real engine of growth is the human mind, and that how we equip our
people today – to learn, to invent, to create – will determine this nation’s
ability to produce jobs, to generate growth, raise living standards and provide
opportunity tomorrow. For this reason, we must continue to invest in
education and innovation. We must overcome the shortage of skilled workers
across the economy and help those who have difficulty with the transition, never
forgetting that the society we build is just as important as the economy we
create.
That is why, Mr. Chairman, when challenges come, we must keep our eyes fixed
on the purposes we have set and remind ourselves not only of what we have
already done but, above all, of what we can do together.
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