Housing Reform

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GUEST OBSERVER
It’s unsurprising that in the lead-up to this year’s federal budget there was a lot of discussion about housing affordability as its centrepiece.
Over the past 20 years price-to-income and price-to-rent ratios have doubled. Sydney’s price-to-income ratio is over 12, making it the second-least-affordable city in the world. Melbourne is in fourth place.
And in a budget tableau as bland as this one, it wouldn’t have taken much to really play up the housing affordability policies.
Yet the measures in this budget involve not much more than tinkering.
On the minus side, the biggest announcement was a “first home super saver scheme”, which would allow voluntary contributions of A$15,000 per annum and A$30,000 in total (per person if in a couple) to superannuation for prospective first home buyers from July 2017. These could be withdrawn and taxed at 30 percentage points below the normal marginal rate and used for a deposit.
This will cost the government A$250 million over four years and do absolutely nothing to help first home owners. We have seen this movie before, with 50 years of first home owner grants in one form or another. All that happens is that this subsidy goes into the price of existing housing. Sellers benefit, buyers get no joy.
It’s bad economics, somewhat costly, and a cruel hoax on prospective home buyers who are struggling with an out-of-control housing market.
But the biggest minus of all was the absence of any measure whatsoever to address negative gearing and CGT exemptions for rental properties. Sorry, there is one: you now won’t able to deduct an airfare to the Gold Coast to “inspect” your rental property. The government has boxed itself in on this, with Labor having taken a plan to the last election to tackle both of these issues (full disclosure, the Labor plan bears a good deal of resemblance to my McKell Institute plan).
Nonetheless, it is reflective of the state of our politics that the one thing that could really help the most (and which the PM has agreed with very publicly in the past) is off the table.
But the measures aren’t all bad. On the plus side, there were incentives for people over 65 to downsize by allowing A$300,000 of the proceeds of a sale of their main residence to go into their superannuation, above the controversial A$1.6 million cap announced in last year’s budget.
Will the budget encourage older Australians to downsize? Maybe. One measure of how powerful an incentive it will be is that it costs only A$30 million over the four-year forward estimates period. This is not a big government spend.
It’s also unclear whether it will be a large enough financial incentive to overcome the emotional and psychological barriers to moving from the family home after many years in it. There was also a conspicuous absence of reforms to stamp duty, which is a major impediment to downsizing.
There was also good news on affordable housing with the establishment of the National Housing Finance and Investment Corporation (NHFIC). It will provide A$63.1 million over four years to operate a so-called “bond aggregator” that aims to provide cheaper financing for community housing providers. This is a good idea that should have a positive effect, and help address the high cost of funds that often plagues financing of housing for low-income earners.
Consistent with the recent populist policy announcements by this government, foreign purchasers of Australian properties were targeted in this budget. There will no longer be a capital gains tax (CGT) exemption for primary residences of foreign and temporary tax residents, and the grandfathering will only last until June 30 2019. There will also be a lower threshold for CGT withholding (A$750,000, down from A$2 million) on foreign tax residents, and the rate will be increased from 10 percent to 12.5 percent.
There were some wishy-washy words about the crucial issue of housing supply. The government has definitely identified the key role that supply plays. They are proposing a variety of “city deals” to provide incentives for zoning reform — especially in western Sydney. That’s all good, but whether it is anything more than the budget-summary feel-good headline - “Working with the states to deliver planning and zoning reform” - remains to be seen.
There was also the announcement of a tax on foreign owners who leave their properties vacant. This is supposed to raise A$16.3 million over four years — which is a rounding error in the scheme of things.
We had a housing affordability crisis before this budget, and we will have one after it. If the first step to recovery is acknowledging that one has a problem, then the government is still on step one.
<a href="https://theconversation.com/profiles/richard-holden-118107" target="_blank">Richard Holden</a> is a Professor of Economics and PLuS Alliance Fellow at UNSW and author for <a href="https://theconversation.com/au" target="_blank">The Conversation</a>.
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Government tinkering with housing affordability in 2017 Budget: Richard Holden

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Ensuring housing supply, dwellings that meet social and demographic demands and providing greater mobility across different tenure types are the minimum changes the Department of Social Services believes to be necessary should current housing policy be reformed.
Not seeking to outline any specific reforms, the Department of Social Services pointed out areas for improvement to the inquiry into home ownership.
"The Department does note that any future reforms should include a focus on improving the effectiveness of housing supply and the collaboration of jurisdictions with respect to the broader policy settings influencing the operation of Australia’s housing market. 
"In relation to improving housing supply, there are a number of avenues that could be explored. For example, in the context of the Reform of the Federation White Paper process there may be scope to examine the effectiveness of the NAHA in incentivising the states and territories to ensure housing supply is better able to respond to increases in housing demand. 
"With respect to better aligning the broader policy settings influencing housing supply and demand, this will require increased, and ongoing, collaboration by all levels of government. 
"Mechanisms to facilitate such collaboration may be looked at as part of the Reform of the Federation White Paper process, although increased informal collaboration may be just as effective as more formal mechanisms. 
"The roles and responsibilities of the Commonwealth and states and territories, in respect of housing assistance and homelessness services, are currently being examined as part of the Government’s Reform of the Federation White Paper process. 
"Potential reforms to the current roles and responsibilities of the Commonwealth and the states and territories, around the provision of housing assistance and homelessness services, may improve the alignment of current incentives in relation to housing demand and supply.  
"However, this process is unlikely to materially impact the broader policy responsibilities of either level of government in terms of their impact on housing supply and demand. 
"There have been over 25 inquiries and significant reports related to housing policy and planning since the last National Housing Strategy was completed in 1991. 
"The most comprehensive of these reports were the Productivity Commission’s Review into First Home Ownership in 2004, the 2008 Senate Inquiry on Housing Affordability in Australia, the Australia’s Future Tax System Review in 2010 and the 2015 Senate Inquiry into Affordable Housing.
"However, housing affordability, and with it the level of home ownership, across Australia, has continued to fall over this period notwithstanding the recommendations and findings of these reviews. 
"The limited impact of previous reviews underscores the proposition that, without reforms to existing structural policy settings, the current issues with housing affordability will not recede, and indeed are more likely to intensify given the current low interest rate environment. 
"This will likely lead to an increase in the number of Australians being excluded from owning their own home, which is likely to put further pressure on the private rental market and in turn community and public housing and CRA [Commonwealth Rent Assistance]." 
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Department of Social Services outlays minimum housing reform changes

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To improve housing affordability the Property Council of Australia has suggested reform covering planning systems, infrastructure provision, and reforms to state and federal taxation arrangements in its submission to the House of Representatives Standing Committee on Economics.
#1 Zone more land for housing 
"Our capital cities need more inner city density, middle ring renewal, as well as new land releases. 
"Reforms should provide capacity within city strategies and local statutory plans to accommodate a growing population. Ensure clear citywide and local housing targets are in place, reported on and met. 
"Support planning strategies to place homes nearer to the opportunities and services within the community. Clearly acknowledge the importance of retirement living facilities, and facilitate their development." 
#2 Simpler planning, faster processes
"New developments are hampered by complex building rules and slow assessment processes that just force up base prices. 
"The cost of compliance with multiple layers of planning development legislation and regulation is now a significant component of the cost of housing. 
"These include, but are not limited to the Building Code of Australia, various state planning instruments, local council planning requirements, specific design guidelines for apartments and other targeted instruments. 
"In some instances the requirements of a single measure in one of these instruments can add $10,000 per dwelling in additional costs."
#3 Tax the production of new housing less 
"The production of housing is a highly taxed activity. Stamp duties, land taxes, GST and large development levies can make up as much as 26% of the total cost of a finished house, and up to 21% of the total cost of a finished apartment. To make housing more affordable we need to tax the production of housing less. 
"Property in Australia is taxed right throughout the supply chain, from land acquisition, to building, to market transactions, all of which are passed through to the end consumer. 
"Treasury’s own analysis highlights how damaging stamp duty is, with a 73 per cent loss of economic livelihood for every dollar taxed. 
"On that basis, we believe it is time for the Commonwealth to lead reform on the abolition of stamp duty, a reform that would act as a catalyst for stronger economic growth and activity. 
"Foreign investment provides valuable capital for new housing development and should not be the subject of punitive charges that act as a tariff on capital flows, as the government is proposing with its excessive fees for foreign investment applications. 
"The Henry Tax Review acknowledged that any changes to the tax treatment of investment properties should only be implemented after other housing supply constraints are resolved. 
"The most commonly discussed alternative to the current arrangements is to quarantine net losses to the investment property – that is, investors are still able to get deductions up to the rental income and carry forward any excess loss against future income (including capital gains). 
"Any wholesale removal of negative gearing or the CGT discount that discriminates against property would significantly harm investment, diminish rental supply and ensure that in the short to medium term, rents and property prices will increase. 
"The key to making homes more affordable is to increase the supply of new housing stock to better meet demand, and any move to restrict the current tax arrangements would be disastrous, particularly for rental supply." 
#4 Link housing and jobs 
"Strategic delivery of new road and rail links will bring more housing closer to jobs, which in turn improves people’s lives, opens up economic opportunities and deepens labour markets for business. 
"Land use planning, including that for housing, should be done in partnership with infrastructure planning and economic development policies. 
"Infrastructure provision has not kept pace with growth, particularly in our larger cities, and the result is long commute times, lack of employment opportunities within a reasonable proximity to housing development, increased pressure on services in certain areas, and a general decline in living standards for a growing proportion of the population."
"The provision of infrastructure that links housing to employment and improves the economic productivity of our cities will bring benefits not only for the economy, but to housing affordability and accessibility for more Australians."
#5 Incentivise reform 
"The Federal Government should consider kick-starting reform to bolster housing affordability by reaching a new competition agreement with the states, with incentive payments for achieving best practice planning reform. 
"Reform should recognise that comprehensive planning reform would deliver significant productivity dividends to the economy. This would in turn boost tax revenues, which can be used to fund reform incentives. 
"Take the form of a written agreement between the commonwealth and the states and territories, whereby the federal government agrees to provide incentive payments on the achievement of specific planning reform objectives and outcomes."
In the submission to the House of Representatives Standing Committee on Economics, the Property Council of Australia also said that there is opportunities for reform on matters like unlocking home equity for seniors, community housing strategy, the National Rental Affordability Scheme (NRAS), the National Disability Insurance Scheme and national data supply repository.
 
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