The economics of the government's plan for 'social unemployment insurance'

One of the big (and surprising) announcements in the Budget earlier this year was that the government was developing a 'social unemployment insurance' scheme. This would presumably sit alongside the current unemployment benefit system, but would work in a similar way to accident compensation, paying each person who is made unemployed (and meeting certain conditions) 80 percent of their prior wage up to a certain cap.

This would represent a significant shift in the style of social security system that New Zealand operates. In my ECONS102 class, we distinguish three types (or models) of social security system:

1. A social assistance model - where there is an emphasis on self-reliance and responsibility, and the government provides support (often means tested) where a person would otherwise face hardship;
2. A social insurance model - where social assistance is available and based on previous contributions to a fund (which might be an individual account, or a general account for all insured people); and
3. A social citizenship model - where all citizens have a right to assistance for any contingencies they face (and the assistance is often not means tested).

In reality, most social security systems have features in common with all three types, but New Zealand's system up until now has mostly been a social assistance model, with the exception of accident compensation, which is clearly a social insurance scheme. This proposed introduction of social unemployment insurance would move unemployment assistance into the social insurance model (it would be interesting to see what the government would do with sickness and invalids benefits, or whether they would remain under the old system, along with sole parents and student allowances).

Anyway, there was a great article in The Conversation today by Simon Chapple and Michael Fletcher (both Victoria University of Waikato) that outlines some of the economic issues with a social insurance scheme:

However, there are two problems with the private insurance market, meaning they under-provide relative to people’s real need.

The first problem is called “adverse selection”, meaning people choosing to buy insurance have better information about the risks facing them than insurance businesses do, and no good reason to disclose that information.

To protect themselves from this, insurance companies set premiums higher. In turn, due to the costs, this leads to people being under-insured. Ultimately, society’s best interests aren’t met.

There’s also the problem of “moral hazard” – if a person has insurance they may take on more risk, without the insurer knowing exactly which customers are adopting riskier behaviour.

Again, insurance companies set higher premiums and people are generally under-insured. And again, this isn’t in society’s best interests...

These market failures mean there is potential for well-designed government interventions to meet the social interest. In particular, making everyone join a social insurance scheme would fix the adverse selection problem.

But a compulsory social insurance system also expands the scope for moral hazard. People might change their behaviour to increase their eligibility for an insurance payout. They might take on jobs with higher redundancy risks, or be less motivated to look for work, because the consequences are now less severe.

The problems of information asymmetry (including adverse selection and moral hazard) is among my favourite topics to teach in my ECONS102 class. Chapple and Fletcher are right that the unemployment social insurance scheme would not have an adverse selection problem (provided it is compulsory, in the same way that accident compensation currently is), and the key problems would be moral hazard.

To expand on the moral hazard problems a little bit, workers would be less fearful of losing their jobs, because they would receive a higher unemployment payment than previously. So, at the margin, workers would not work as hard, and productivity might decrease. Similarly, absenteeism might increase, which also reduces productivity. 

On the other hand, wages might increase. To see why, consider a search model of the labour market. This model recognises that each matching of a worker and a job creates a surplus that is shared between the worker and the employer, based on their relative bargaining power. A higher unemployment payment increases the worker's bargaining power, since they can afford to hold out for a better deal. Employers will have to offer slightly higher wages than before, in order to attract workers to leave the unemployment payment and accept the job offer. So, wages will increase, and employers will find that vacancies take a little longer to fill.

Workers may also benefit from better job matches. Since they can afford to stay on the higher unemployment insurance payment for longer, they can afford to wait and find a job they really want, rather than accept the first half-decent offer they receive. The number of unemployed will likely increase, and the average length of unemployment spells will also increase.

Clearly, there is a lot for the government to balance here. Chapple and Fletcher also note that:

If it turns out there are gaps in the current system, advocates of social insurance must also consider:

• such a scheme may simply be substituting for one or several of the existing solutions, which would then reduce if the scheme were introduced

• reforming and improving what already exists may be preferable in terms of cost, effectiveness and equity than introducing an entirely new system

• there may be implications for both equity and erosion of the core welfare system of creating a separate, higher tier of assistance for some.

At this stage, all we have had from the government is an announcement, and a promise of "public consultation later in 2021". Presumably that consultation has been delayed until next year, due to the pandemic. It will be interesting to see what comes out of this.