Australia’s Fiscal Frameworks澳大利亚财政体制框架

Mr Michael Willcock

General Manager, Commonwealth-State Relations Division

23 November 2006

联邦 - 州关系司总经理卫科先生2006 年 11 月 23 日

The Treasury

Overview概述

• Australian Treasury’s role• Current fiscal and economic outlook• Budget processes• Federal arrangements• Fiscal Imbalance in federal finances• Federal financial reforms in 2000• Equalisation arrangements• Challenges in fiscal federal arrangements

国库部的角色澳大利亚当前的财经展望政府预算程序联邦政府财政安排联邦政府财政不平衡2000 年财政体制改革均等化财政安排联邦政府财政面临的挑战

The Treasury

Australian Treasury澳大利亚国库部

• Treasury’s mission – to improve the wellbeing of the Australian people by working for:

• sound macroeconomic environment• effective government spending and tax arrangements• well functioning markets

• Fiscal Group – ensuring effective government spending arrangements through

preparation of the Australian Government Budget and funding of other levels of government

国库部的使命提供良好的宏观经济环境 , 高效的政府开支和税收政策安排以及完善的市场

体系 , 提高澳大利亚人民福利。财政集团通过准备澳大利亚政府预算和各级政府资金安排，确保政府支出安排高效性

。

The Treasury

Australian facts澳大利亚概况

• Population – 20.7 million people• In 2005-06:

GDP - $962 bn Imports - $209 bn Exports - $192 bn

• Exchange rate:AUD $1 = USD 0.76 = RMB 6

• Financial year runs from 1 July to 30 June人口： 2070 万

2005-06 年：GDP ： 9620 亿澳元进口： 2090 亿澳元出口： 1920 亿澳元汇率： 1 澳元 =0.76 美元 =6 人民币财政年度 :7 月 1 日至次年 6 月 31 日

The Treasury

Total general governmentspending as % of GDP

一般政府支出总额占 GDP 比例 Source: OECD 资料来源 : 经济合作组织

The Treasury

Current fiscal and economic outlook

当前的财政和经济展望

The Treasury

Underlying cash balance现金流量表

-3

-2

-1

0

1

2

3

1995-96 1999-00 2003-04 2007-08

-3

-2

-1

0

1

2

3

Ou

tco

me

s

Est

ima

tes

Pro

ject

ion

s

Per cent of GDP Per cent of GDP

The Treasury

Budget balanceinternational comparison

国际预算平衡表

-4

-3

-2

-1

0

1

2

3

1996-97 1998-99 2000-01 2002-03 2004-05 2006-07

-4

-3

-2

-1

0

1

2

3

OECD Australia

Per cent of GDP Per cent of GDP

The Treasury

General government net debt levelselected countries

一些国家一般政府净债务水平

-20

0

20

40

60

80

100

Canada OECD United Kingdom Japan United States Australia

-20

0

20

40

60

80

100

Decade from 1998 to 2007

Per cent of GDP Per cent of GDP

The Treasury

Real GDP growth (year average)

实际国民生产总值 ( 年均数 )

0

1

2

3

4

5

6

1996-97 1998-99 2000-01 2002-03 2004-05 2006-07

0

1

2

3

4

5

6

Forecasts

Per cent Per cent

The Treasury

Australia’s budget framework

澳大利亚预算框架

The Treasury

Charter of Budget Honesty Act 19981998 年预算诚实法章程

• Requires Government to release a fiscal management strategy

• Requires Government to produce regular budget economic and fiscal outlook reports

要求政府发布财政安排战略要求政府定期公布经济和财政报告

The Treasury

Medium-Term Fiscal Strategy中期财政战略

• Annual fiscal strategy statement sets out medium-term fiscal strategy• Primary objective is to maintain budget balance on average over the

economic cycle• Subsidiary objectives:

– Maintain budget surpluses while economic growth remains sound– No increase in tax burden – Improve the net worth position

• 年度的财政战略报告书明确中期财政战略

• 以保持经济周期的平均收支平衡为主要目标• 附属目标是 :• 在经济增长保持良好态势的同时保持预算盈余• 不增加税负• 提高净资产状况

The Treasury

Economic and Fiscal Outlook Report经济和财政展望报告

• The Charter requires an annual Economic and Fiscal Outlook Report to provide:章程要求年度经济和财政报告包括 :

– Fiscal estimates (over 5 years)

– Economic and other assumptions (over 5 years)

– Sensitivity analysis

– Risks to the fiscal outlook宪章要求年度的经济和财政前景报告书并且规定告书必须包括：

– 财政估算 （ 5 年以上）

– 经济和其他的假定 （ 5 年以上）

– 敏感分析

– 财政前景的风险

The Treasury

Other Reporting Requirements其他报告要求

• Mid-Year Economic and Fiscal Outlook (December/January each year)

• Final Budget Outcome (September each year)

• Pre-Election Economic and Fiscal Outlook

• Intergenerational Report (every 5 years)年中经济和财政展望 ( 每年 12 月 /1 月 )决算结果 ( 每年 9 月 )大选前经济财政展望多年代报告 ( 每 5 年一次 )

The Treasury

Role of Parliament议会的作用

• The Parliament provides the legislative authority for the Government’s Budget.– The party with most seats in the House of Representatives forms the

Government.– Government’s key decision making body is Cabinet.

• Australian Constitution requires:– All federal revenues to go into the Consolidated Revenue Fund (CRF);

and– The Government’s authority to spend out of the CRF must be approved

by Parliament.

• 议会为政府预算提供立法支持– 在众议院拥有大多数席位的政党组成政府– 内阁拥有决定政府结构的权力

• 澳大利亚《宪法》要求 :– 所有的联邦收入都应归入统一收入基金；– 未经议会同意，政府当局不能擅自使用统一收入基金

The Treasury

Key steps in annual budget process年度预算报告的主要步骤

• Senior Ministers’ Review (November)• Expenditure Review Committee (March)• Revenue Committee (April)• Budget Cabinet (April)• Finalising estimates and documents• Budget delivered (May)• Parliamentary review (June)• Mid year update (December)• 高级部长审查 （ 11 月）• 支出审查委员会 （ 3 月）• 收入委员会 （ 4 月）• 预算内阁 (4 月）• 确定估算和文件• 递交预算 （ 5 月）• 议会审查 （ 6 月）• 年中更新 （ 12 月）

The Treasury

Senior Ministers’ Review (SMR)高级部长审查

• Portfolio Ministers outline their policy proposals for new spending (October)

• Proposals considered by SMR (December)– Prime Minister, the Deputy Prime Minister, the Treasurer and the

Minister for Finance

• SMR assesses proposals against main budget priorities and decides which proposals can be developed in more detail

• 各部部长为新款项支出规划各自政策提案 （ 10 月）

• 高级部长研究提案 (12 月 )– 总理 , 副总理 , 国库和财政部长

• 高级部长对符合主要预算优先配给政策的提案进行审核并待进一步考虑

The Treasury

Expenditure Review Committee (ERC)支出审查委员会

• A committee of 5-6 Senior Ministers, including Prime Minister, Treasurer and Minister for Finance

• Meets for a period of 3 weeks (March)• Considers each new spending proposal allowed to come

forward by SMR• ERC recommends spending proposals to Budget Cabinet• 委员会由包括总理，国库和财政部长在内的 5 至 6名高级

部长组成• 讨论长达 3个星期 (3 月 )• 讨论经由高级部长审查通过的关于新支出提案• 支出审查委员会把支出提案向预算内阁推荐

The Treasury

Revenue Committee收入委员会

• Committee consisting of Prime Minister, Treasurer and Minister for Finance

• Meets in late March/early April

• Considers revenue-related budget proposals• 委员会由总理，国库和财政部长组成

• 讨论在 3 月底或 4 月初进行

• 讨论关于预算提案的收入

The Treasury

Budget Cabinet预算内阁

• Attended by all Cabinet members

• Meets in Mid-April

• Usually endorses outcomes of expenditure and revenue committees

• Outstanding issues resolved by Senior Ministers• 内阁成员全部参加

• 四月中旬进行讨论

• 通常由内阁批准支出和收入委员会的讨论结果

• 高级部长解决未果的问题• 内阁成员全部参加

• 四月中旬进行讨论

• 通常由内阁批准支出和收入委员会的讨论结果

• 高级部长解决未果的问题

The Treasury

Estimates and documentation stage估算和证明文件阶段

• Expense and non-tax revenue estimates responsibility of Finance

• Economic and tax revenue estimates responsibility of Treasury

• Budget documents prepared jointly by Treasury and Finance (April)

• Budget documents tabled by Treasurer in Parliament (early May)

• 财政部负责支出和非纳税收入估算• 国库部负责经济和纳税收入估算• 国库和财政部共同负责准备预算文件 （ 4 月）• 国库部长向议会递交预算文件 （ 5 月上旬）

The Treasury

Mid-year update年中更新

• Charter requires Treasurer to release a mid-year economic and fiscal outlook report

• Mid-year update takes into account:

– Latest economic data

– All Government decisions since the Budget

• 宪法要求国库部长公布年中经济和财政前景报告

• 年中更新包括：

– 最新经济数据

– 自从确定预算后，所有的政府决定

The Treasury

Future fiscal challenge

未来财政挑战

The Treasury

Intergenerational Report多年代报告

• Charter requires Treasurer to release an Intergenerational Report every five years– First one released in 2002; second one being prepared now

• Examines fiscal pressures over 40 year timeframe:“to assess the long term sustainability of current Government policies … including by taking account of the financial implications of demographic change.”

• 章程要求国库部长每 5 年发表一次多年代报告2002 年公布了第一次报告 ,第二次报告正在准备中预测 40 年周期里的财政压力 :“评估现任政府政策的持续性包括人口变化对财经状况的影响

– 每 5 年公布

– 四十年周期

The Treasury

Increasing fiscal pressure (as measured by the primary budget balance)

递增的财政压力 (由主要预算平衡衡量 )

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2002-03 2041-42

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-1

0

1

2Per cent of GDP Per cent of GDP

The Treasury

Drivers of future fiscal gap未来财政缺口驱动力

• Ageing population will result in increased demand for aged pensions and health and aged care spending.– In 2002: 5 workers for every person over 65– In 2042: 2.5 workers for every person over 65

• More costly technology and rising community expectations will increase health costs.

• 老龄化人口将加大养老金 ,健康和老年人福利开支-2002 年 : 每 5个工作人口扶养 1 个 65岁以上的老人-2042 年 : 每 2.5个工作人口扶养一个 65岁的老人更加昂贵的技术和增长的公民期待值将提高健康费用

The Treasury

Responses to fiscal challenge财政挑战应对措施

• To manage long-term pressures: – maintain ongoing vigilance and fiscal discipline to limit growth in

spending– improve government’s balance sheet by accumulating assets in

the Future Fund to offset future liabilities– enhance growth potential through reforms increasing labour force

participation and productivity to increase national income

管理长期压力 :

- 通过保持持续的警惕性和财政纪律限制开支增长- 通过未来基金的积累抵消未来债务 , 改善政府资产负债表

状况- 通过改革提高劳动力参与率和生产率 , 提高国家收入 , 提升潜在增长

力

The Treasury

The Future Fund未来基金

• The Government has set up the Future Fund to:– increase national savings– fund the Government’s superannuation liability (by 2020)– maximise the Government’s net worth

• The Fund will be built up with money from budget surpluses, proceeds of asset sales and reinvested earnings.

• 政府建立未来基金用于：- 增加国家储蓄- 为政府的养老金债务提供资金 ( 到 2020 年为止 )

- 以及最大化政府净值

The Treasury

The Future Fund未来基金

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80

120

160

2005-06 2007-08 2009-10 2011-12 2013-14 2015-16 2017-18 2019-20

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80

120

160

Target for Future Fund Assets Unfunded Liability

$billion $billion

The Treasury

Australia’s federal arrangements

澳大利亚联邦政府财政安排

The Treasury

Australian Federation(spending as a share of GDP)

澳大利亚联邦政府支出占 GDP 比例图

Federal Government

6 States & 2 Territories

703 Local Governments

National 21% of GDP

State/Territory14% of GDP

Local2% of GDP

联邦政府

州 /领地政府

地 方 政 府

The Treasury

Australian Constitution澳大利亚宪法

• Specifies exclusive powers of Australian Government:– defence, international trade, external affairs, immigration, currency,

postal services etc.– certain tax powers (customs, excise).

• Residual powers are left to States but may also be exercised by the Australian Government.

• Local government not referred to in Constitution. – Local governments manage local services - roads, water, town

planning, rubbish collection. Australian Government will give them $2 billion in 2006-07.

宪法划分了澳大利亚政府的职权范围 :- 国防 , 国际贸易 ,外交事务 ,移民 ,货币和邮政服务等。-某些税务权力（海关，国内货物税）宪法没有涉及地方政府规定-地方政府管理地方服务 - 公路，水，城市规划和垃圾收集。 2006-07 财

政年度澳大利亚政府计划给地方政府拨款 20 亿澳元用于以上项目。

The Treasury

Composition of Australian Government and State expenditure, 2006-07

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Def

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Pub

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Soc

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unic

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Oth

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Australian Government SPPs Total States

澳大利亚国家和州政府支出组成 , 2006-07

国防 公共秩序 教育 健康

The Treasury

Size of 3 levels of government三级政府规模2006-07

$bn 10 亿澳元2006-07

% of GDP

占国民生产总值比例Revenue

收入Expenses

支出Revenue

收入Expenses

支出

National

联邦231.7 219.7 23.0 21.8

States

州143.0

Of which:

Own-source 75

Aust Govt 68

142.0 14.2 14.1

Local Government

地方

24.2 22.0 2.4 2.2

The Treasury

Australian Government Tax Revenue, 2006-07

• Total tax revenue – $217 billion– Personal income taxes - $116 billion (53% of total tax

revenue)– Company tax - $59 billion – Excise and customs - $28 billion– 税务收入总额 – $2170 亿– 个人所得税 - $1160 亿 ( 占总税收的 53%)– 公司税 - $590 亿 – 货物税和关税 - $280 亿

澳大利亚政府税务收入 (2006-07 年度 )

The Treasury

State tax revenue, 2006-07州政府税务收入 (2006-07 年度 )

• Total State and Territory tax revenue – $85 billion

Gambling taxes, $4.9 b

Insurance taxes, $3.8 b

Motor vehicle taxes, $5.9 b

Goods and services tax,

$39.1 b

Payroll taxes, $13.7 b

Property conveyance

taxes, $10.5 b

Land tax, $3.8 b

•州政府税务收入总额 – $850 亿

•机动车辆税 – $59 亿

The Treasury

州政府税务收入 (2006-07 年度 )

• 州政府税务收入总额 – $850 亿

– 增值税（ GST ） - $391 亿

– 自有资源税务收入 - $420 亿• 薪金税 - $137 亿• 财产转让税 - $105 亿• 土地税 - $38 亿• 赌博税 – $49 亿• 保险税 – $38 亿• 机动车辆税 – $59 亿

The Treasury

Australian Loan Council

• Established in 1927 to control and coordinate most national and State public sector borrowing.

• LC now monitors public borrowings, rather than setting strict borrowing limits.

– Intention is to increase transparency to facilitate market scrutiny of government borrowing practices .

• LC meets annually in March to consider jurisdictions’ nominated total borrowings for the coming year.

• 成立于 1927 年控制和协调多数国家和州公共部门借款• 该委员会现在监督公共部门借款功能大于制定借款规定

- 意图是提高政府借贷行为市场管理透明度 该委员会每年三月开会讨论下一年各行政区借贷计划

The Treasury

澳大利亚贷款委员会

• 成立于 1927 年控制和协调多数国家和州公共部门借款

• 该委员会现在监督公共部门借款功能大于制定借款规定- 意图是提高政府借贷行为市场管理透明度该委员会每年三月开会讨论下一年各行政区借贷计划

The Treasury

Fiscal Imbalance财政失调

• Ideal for each government to raise (by taxes or borrowings) all the money to fund its spending

• States have large service delivery obligations – health, education, roads, police

• Australian Government has relatively stronger revenue base to fund its spending obligations in comparison to the States

• So Australia’s States rely on funding transfers from the Australian Government– This reduces incentives for States to control spending and provides

opportunities for cost and blame shifting理想的目标是每个政府筹集所有需求资金州政府有提供大量服务的义务 - 卫生 ,教育 , 公路和警察澳大利亚联邦政府在履行职责资金面比州政府雄厚所以 , 州政府依赖联邦政府的转移支付

-这种状况使州政府控制开支大打折扣并为费用和责任划分提供了机会

The Treasury

Taxation Principles税收政策原则

• Some fiscal imbalance may be justified.• National government best placed to levy taxes if:

– The tax aims at economic stabilisation or income redistribution– The tax base is mobile– There are economies of scale in tax administration– There are high compliance costs for taxpayers facing differing tax

regimes across different States, or– Tax bases are unevenly distributed among the States通过税收政策 , 一些财政不平衡可能会得到调整考虑下面的因素 , 中央政府集中征税是最佳选择 :税收目的是稳定经济或收入再分配非固定的税基税收统一管理可以统一税收体制不同州纳税标准或者对经济发展不同的州给予不同的税务收入返还份额

The Treasury

Federal financial reforms in 2000

• 1 July 2000: a new system:– all GST revenue paid to the States– States can spend GST revenue according to their own priorities– removed State reliance on the Commonwealth for financial assistance

grants;– States have a direct role in determining the GST base and rate and related

operational matters– timetable for the abolition of a range of inefficient State taxes

2000 年 7 月 1 日 : 一个新的财政安排体系 .

• 在基于联邦与州政府财政关系改革上的政府间的协议中– 所有给州和领地的增值税 (GST) 收入，将依照它们自己的预算优先权使用 ;– 州政府不依赖联邦财政补贴 ;– 州政府在决策增值税 (GST) 基数和比率及相关的运作事务上充当直接角色 ;– 废除一系列的低效的州税项的时间表 ; – 部委的联邦与州政府财政关系参议会

联邦与州政府财政关系改革

The Treasury

Equalisation of States’ fiscal capacity州政府财政能力平衡

Equity of access to public services across Australia:

If States make same effort to raise revenue from own sources

And operate at same level of efficiency

Then each State should have the financial capacity to provide services of equal standard.

澳大利亚各州有享受同等公共服务的权利 :• 如果州行政区通过同等的努力在自己管辖的资源范畴内提

高收入• 同时在同等效率下操作• 那么州行政区应该有能力提供平等标准的服务

The Treasury

Equalisation mechanism均等化分配机制

• Equalisation achieved through distribution of GST revenue – approx $39 bn in 06-07

• Commonwealth Grants Commission (CGC) calculates relative shares for each State

• CGC looks both States’ at revenue capacities and expenditure needs

• The Treasurer determines each State’s share; States can spend their share as they wish

• 均等化通过分配商品和服务税收入实现 -06-07 财政年度大约是 390 亿澳元

• 联邦政府拨款委员会计算每个州份额

• 该委员会根据各州收入能力和支出需求决定

• 各州的份额最后由国库部长批准 ;批准后 , 各州可以自行安排使用

The Treasury

Effectof fiscal equalisation横向财政平等化的效果

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NSW VIC QLD WA SA TAS ACT NT

GST share Population share

商品和服务税比例 人口比例

The Treasury

Grant revenueas a % of States’ total revenue政府拨款占州政府总收入比例

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1901-02 1909-10 1918-19 1928-29 1938-39 1948-49 1958-59 1969-70 1979-80 1989-90 1999-00 2000-01

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70Per cent Per cent

州政府缴纳的收入税 州政府收到的增

值税州政府缴纳的进口

关税

The Treasury

Specific Purpose Payments专项拨款

• $29 billion in 2006-07 (accounts for 20% of State revenue) • Tied grants – national government specifies where money is spent• Allows the national government to influence policy in areas outside its

Constitutional responsibility• 2006-07 年 290 亿占州政府收入 20%• 中央政府附加条件拨款 - 政府指定项目用途• 允许中央政府在宪法规定权限外施加影响

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Education Health SocialSecurity

Housing Transport LocalGovernment

Other

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SPPs to SPPs through

$billion $billion

The Treasury

Accountability问责制

• Aim to enhance transparency – Uniform budget presentation of financial statements

• the financial results and projections of all Australian governments must be reported in a uniform way to facilitate transparency and comparison.

– Performance reporting requirements in SPP agreements

– Auditing of State accounts

• 目的是增加透明度 统一财政报告中的预算陈述方式 特殊拨款协议里有提供资金运行报告的要求 对州财政管理进行审计

The Treasury

Composition of Australian Government and State expenditure, 2006-07

澳大利亚国家和州政府支出组成 , 2006-07

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20%

40%

60%

80%

100%

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Australian Government SPPs Total States

澳大利亚政府 特殊用途拨款

州政府

The Treasury

Centralisation of power集权制

• Reasons for increased Australian Government involvement in traditional State areas include:

– Poor State service delivery– Public expect Australian Government to take a national approach

• Scope to reallocate roles and responsibilities to one level of government to provide more clarity and accountability.

– Service should be provided by the level of government that most closely represents the region that benefits from the service, unless significant spillovers exist

• Australian Government best placed to regulate national markets for energy, labour, water, transport etc because of spillovers.

• 联邦政府权限扩大到传统州权限范围内的原因包括 :- 州服务不到位- 公众期望联邦政府采取国家行动重新集多种作用和职责于一级政府可以更加明确和提高政府责任-除非特别权限安排 , 提供最直接服务的一级政府将收益于提供服务根据权限划分 , 中央政府管理全国的能源 ,劳动力市场 , 水 , 交通等国家市场。

The Treasury

Council of Australian Governments (COAG)澳大利亚联邦政府委员会

• COAG recently agreed to a new National Reform Agenda to boost productivity and participation.– Improving productive capacity of the economy through reforms

in energy, transport and infrastructure regulation.– Enhancing human capital by focusing on health and education.– Reducing the regulatory burden imposed on business.

• Co-operation between levels of government is essential.• 该委员会通过了新的关于提高生产力和参与的国家改革方案- 通过能源，交通和基础设施管理改革，提高国家经济的生产能力。- 提升人力资源水平重点是健康和教育水平。-减轻企业管理负担各级政府之间的合作至关重要。

The Treasury

Challenges in fiscal federal arrangements联邦财政面临的挑战

• Sustainable federal finances– States’ revenue base– Australian Government’s expenditure creeping into

areas of traditional State responsibility

• 保持联邦财政持续性– 州政府的年收入基础– 澳大利亚政府的支出潜入传统的州政府支出范围

Australia’s Fiscal FrameworksMr Michael Willcock

General Manager, Commonwealth-State Relations Division

November 2006

澳大利亚财政体制框架联邦 - 州关系司总经理卫科先生

2006 年 11 月