Distillers don't need tax relief in order to promote their goods internationally - they already have it

Earlier this week, the NBR reported (paywalled):

Kiwi distillers are calling on the Government to introduce an excise tax rebate scheme, arguing the current system is stifling an industry that could follow wine's path from obscurity to international recognition...

The proposal requests an excise duty remission of up to $350,000 annually for each distillery, which would free up funds that could be put towards employment, expansion, and export growth.

In order to be eligible for the DSA proposed scheme, distillers would need to hold a license to manufacture distilled beverages, produce at least 70% of its alcohol content (by volume) within New Zealand, be independent, and be a member of DSA.

The proposal is modelled on Australia's excise remission scheme, which allows domestic distilleries to claim up to A$400,000 ($469,600) a year...

On the outskirts of Auckland, Pōkeno Whisky's Johns estimates about 35% of his company's domestic revenue goes toward tax. He says he holds four roles at New Zealand's largest single malt distillery – running sales, marketing, operations, and general business – but doesn't pay himself. He has halved distillation over the past 18 months because times are tough, and is investing what he can into sales and marketing in an attempt to buck the trend.

"At the end of the day, we're not selling Pōkeno Whisky overseas. We're selling brand New Zealand."

Bluff Distillery's Nash says while a spirits tax made sense historically, the system was overweighted and out of date. He says a lot of distillers that could have explored international markets haven't been able to because the lion's share of returns go toward excise.

The first thing to note is that the excise tax paid by domestic distillers is not a big money-spinner for the government. The article reports that domestic distillers pay about $23 million in excise each year. That is small relative to the overall $800 million in total alcohol excise tax collected each year (see here). The purpose of an alcohol excise tax is to reduce the consumption of a good that has negative externalities - it is an example of a Pigovian tax. Reducing excise tax would lower the price that consumers pay for alcohol, increasing consumption, and increasing the negative externalities associated with alcohol consumption. That is not a proposal that should receive broad support.

Now, I was thinking about this and I had a better idea that would give some excise tax relief for distillers, without increasing alcohol-related harm in New Zealand: zero-rate the excise tax for exports. In other words, distillers would pay excise tax only on products that they sell domestically, and not on exports. If the argument by the distillers (as noted by Matt Johns of Pōkeno Whisky in the quote above, is that they want to explore international markets, then this proposal lets them do so, and on a more level playing field with distillers overseas. The distillers will pay tax on their profits. The government doesn't really need to tax them twice. And, since by definition exports are not sold domestically, there is no increase in negative externalities from removing the excise on those exports, and there may even be a decrease [*].

It turns out my proposal already happens - there is an 'excise duty drawback' that allows distillers to claim back the excise tax paid on any goods that they export. So, the distillers are already free to 'sell brand New Zealand' to their heart's content. They don't need to have their excise on New Zealand sales reduced in order to achieve that goal. Is there a real problem here? Or is this just another case of an industry with its hand out for government support?

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[*] Interestingly, the zero-rating of excise tax on exports may produce a further benefit in terms of reducing alcohol consumption (and negative externalities) in New Zealand. If it becomes more profitable to produce and export distilled products, then they may choose to sell less in New Zealand. That would actually increase prices in New Zealand, reducing alcohol sales and consumption.

To see how this works, consider a distiller who could sell overseas at a price P1, receiving the price P0 after paying an excise to the government on all of their production (sold overseas, or sold locally). Call the difference in those two prices T (the excise tax), so P1 - T = P0. It makes sense for the distiller to also sell its products at the price P1 in New Zealand (if they could receive a higher price overseas, they would sell there instead), also receiving P0 after paying the excise tax. Now, what happens when the excise tax is removed for exports? Instead of receiving P0 from exports, the distiller receives P1 (since they no longer have to pay the excise tax T). They won't want to sell their products in New Zealand and receive less than P1. That only happens if they raise the price from P1 to P1 + T (which leaves the distiller with P1 after they pay the excise tax T). So, we would expect the price on distilled products to increase in New Zealand, if the excise tax were removed from exports. In other words, the 'excise duty drawback' scheme likely increases prices on distilled products in New Zealand, although in reality the 'pass-through' of tax to retail prices is likely to be somewhat less than the full amount of T.