Is it better to have a more educated mayor?

It seems somewhat self-evident that having a more educated mayor would be better than having a less educated mayor. However, whether education is a positive attribute for a mayor really depends on whether, and to what extent, more educated mayors act differently than less educated mayors. Do they spend more, or less? How do they spend the public budget?

This new article by Alessio Mitra (University of Kent), published in the European Journal of Political Economy (ungated earlier version here) directly addresses the second question - how does mayoral education affect public finance? Mitra uses data from municipal elections in Italy over the period from 2000 to 2015, focusing on municipalities with a population of less than 15,000 (because larger municipalities use different electoral rules). He defines a more educated mayoral candidate as one with a university degree, and a less educated mayoral candidate as one without a degree.

Mitra applies a regression discontinuity design (RDD), which involves comparing municipalities that narrowly elected a more educated mayoral candidate over a less educated candidate with similar municipalities where the more educated candidate lost to the less educated candidate. In very close elections, the identity of the winner is plausibly as-good-as random, provided there is no manipulation around the threshold related to the education of the candidates. In other words, since the difference between getting 50.01 percent of the vote and getting 49.99 percent of the vote is essentially random, the education of the winning mayoral candidate is basically determined randomly in these close elections between candidates with different education levels. With that assumption in mind, observed differences between the municipalities where a more educated candidate won with those where they lost can be attributed to the difference in mayoral education.

Mitra's dataset includes more than 18,000 mayoral elections, of which 1211 have a margin of victory of less than five percent (which he defines as a close election, and includes in the analysis). He looks at the differences in public expenditure, initially focusing on changes in the share of spending devoted to operational expenses (or 'current expenditure' as he terms it) or public investment. In this, Mitra finds that:

When an educated mayor is elected by chance, public investment rises by 3 percentage points of total expenditure compared to a less educated counterpart.

Digging down into the allocation of that public investment, he finds that:

...educated mayors allocate an additional 1 percentage point of total expenditure to education investment, accounting for one-third of the overall increase in public investment.

And going a bit deeper than that:

Among education investments, immovable assets dedicated to nurseries receive the largest increase in resources.

Consistent with Italy’s balanced budget requirement on municipalities, there is no significant change in fiscal deficit. That means that the additional spending devoted to public investment must mean a corresponding reduction in operational expenditure. Mitra doesn't really dig into that at all.

What we take away from this paper is that more educated mayors devote more spending to education. In the Waikato Economics Discussion Group today, we discussed what mechanisms might underlie this difference, which is something that Mitra didn't explore. Perhaps more educated mayors see more value in education. After all, they invested more in their own education than a less educated mayor did. However, that's not entirely consistent with spending more on public investment in early childhood education.

A second possibility is that more educated mayors have a lower intrinsic discount rate, increasing their willingness to make long-term investments, both in their own education and in the education of their citizens. This is more consistent with devoting spending to public investment in early childhood education.

A third possibility is that more educated mayors may be better at the administration of public investment, such as project approvals, capital budgeting, grants, or procurement. This means that they have greater capacity for public investment projects. However, that greater capacity wouldn't necessarily be more apparent for public investment in education, or early childhood investment.

However, an intriguing but speculative fourth possibility is that more educated mayors understand that public investment can be used strategically to affect demographics. Many municipalities in Italy are facing extreme population ageing and/or declining populations. Mitigating (but probably not reversing) those population changes may be possible through creative policy. If the municipality invests in early childhood education, that may make the municipality more attractive for young parents to relocate to, and may reduce cost pressures that hamper fertility. The problem with this as an explanation is that it isn't clear that these trends and policy solution would be more apparent to a more educated mayor than to a less educated one.

The second possibility seems to me like the most promising. However, exploring the reasons why more educated mayors spend more on public investment, particularly in education, is a promising exercise for future research.

One last point is that the effects are actually quite modest. The total budget for a municipality of 15,000 population would be around €15-25 million per year (based in part on this and this, both in Italian, but see also here for public finance data for all Italian municipalities). A reallocation of three percentage points to public investment represents up to an additional €750,000 per year. And if one-third of that is spent on public investment in education, that is an additional €250,000 per year. It's not nothing, but it's certainly not building multiple new schools. Maybe it's an additional small school building per year.

So, is it better to have a more educated mayor? This research suggests yes, but that relies on a normative view that more spending on public investment, particularly in education, is overall a good thing. However, the size of the effect doesn't suggest transformational change, and we don't really know what the trade-offs are in terms of what categories of operational spending were reduced. A university degree does not necessarily make someone a better mayor, and this paper cannot tell us whether more educated mayors have better preferences, longer time horizons, or simply greater administrative capacity. What it does show is that who gets elected can change not just how much is spent, but what kind of future a municipality chooses to invest in.