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The opposition's opening remarks
Apr 20th 2010 | Steve Landefeld
Gross domestic product (GDP) is a key measure of a country's economic activity—the purpose for which it was designed. It was not designed to be, nor should be regarded as, a comprehensive measure of society's well-being. Nonetheless, it has also proven useful as a gauge of an economy's capacity to improve living standards. It was a catastrophic decline in living standards that prompted the development of national, or GDP, accounts. Trying to design policies in the 1930s to combat the Great Depression, President Roosevelt had only such sketchy(GRE:a粗略的) data as stock prices, freight car loadings and incomplete indices of industrial production on which to rely. In response, the US Department of Commerce developed a set of national economic accounts that for the first time provided a comprehensive framework to guide policy decisions to assist the millions of people who were out of work.
GDP, and the broader set of national income, product and wealth accounts, has stood the test time and no other measure has proven a worthy alternative. Simon Kuznets, one of the early architects of the accounts, in 1941 recognised the limitations of focusing on market activities and excluding household production and a broad range of other non-market activities and assets that have productive value or yield satisfaction. Yet 75 years and lots of research later, there is no broader social measurement tool that officials would agree is valid and useful.
It would, therefore, seem irresponsible to abandon the most comprehensive and reliable system currently available to tell us how a society is faring economically. GDP may not be a complete measure of improving living standards, but that does not make it a poor one, especially when considering what could possibly replace it today.
There is, of course, room to improve GDP through better measuring of the distribution of the gains from economic growth and the sustainability of that growth, and selected measures of non-market activities that affect the economy—and these concepts have merit. Rather than replacing GDP, the goal might be extending and supplementing GDP and the national accounts, rather than their replacement.
Over time the national accounts have been constantly updated and extended to address changes in the economy and to keep them relevant, and many of the measurement issues raised in the current debate can be addressed within the context of these accounts. Yet extensions of the national accounts cannot be allowed to subject a critical tool for economic policy to uncertainty. Past efforts to expand conventional GDP have foundered on the inevitable problems of subjectivity and uncertainty inherent in measuring happiness, household work and other non-market activities. Critics rightly fear that the inclusion of such uncertain and subjective values in GDP will seriously diminish the essential role of the national accounts to financial markets, central banks, tax authorities and governments worldwide in measuring and managing the market economy.
Much work has focused on how to successfully broaden the utility of GDP, while preserving its core integrity. Several National Academy of Sciences studies on accounting for the environment (Nordhaus and Kokkelenberg, eds, 1999) and non-market production (Abraham and Mackie, eds, 2005), as well as the System of National Accounts (1993) guidelines for compiling GDP, have concluded that an expansion of the GDP accounts should take place in supplemental, or satellite, accounts that extend their scope without reducing the usefulness of the core GDP accounts.
They also conclude that such an expansion should focus on economic aspects of non-market and near-market activities—such as energy and the economy's use of natural resources, the impact of investments in research and development (R&D), health care, or education—and not attempt to measure the welfare effect of such interactions.
Recognising the concerns of subjectivity and uncertainty, the focus should remain on creating "new" estimates within the framework of the existing accounts. For example, the Stiglitz-Sen-Fitoussi Commission (2009), which explored expanded welfare measures, has suggested a number of ways that "classical GDP issues" can be addressed within existing GDP accounts or through an extension and improvement of measures included in existing accounts.
The US Bureau of Economic Analysis focuses on just such improvements, and President Obama this year proposed extensions within the scope of the existing accounts that would provide new measures of:
- how growth in income is distributed across households, other sectors and regions;
- the sustainability of trends in saving, investment, asset prices and other key variables important to understanding business cycles, economic growth and living standards.
There are, however, limits to what can reasonably be included in GDP. For many years the problem has not been with GDP, but rather the singular focus on GDP alone as a measure of society's welfare. Many non-market measures of welfare may be better included in such measures as the newly authorised US National Academies Key National Indicators System.
These and other efforts in the coming years will lead to a more inclusive set of measurement tools that will enhance our understanding of countries' standards of living. This progress is inevitable, but it does not render current GDP data inadequate. GDP will continue to play a crucial role in measuring social progress in and among countries. |