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Intergenerational perspectives on aging (ageing), economics and globalisation
Transcript of Intergenerational perspectives on aging (ageing), economics and globalisation
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Intergenerational Perspectives on Ageing, Economics and Globalisation
Michael D Fine1
Note: This is the prepublication version of this article. The final publication version is published as
Fine, M. (2014) ‘Intergenerational perspectives on ageing, economics and globalisation’ Australasian Journal on Ageing, 33(4): 220-225. The published article may be accessed here:
http://onlinelibrary.wiley.com/doi/10.1111/ajag.2014.33.issue-
4/issuetoc;jsessionid=36FDFEC6977644CEC9BEFF232464C759.f03t04
or through your university’s online subscription library
Abstract
Evidence shows ageing to be historically a product of economic development, closely associated with
the high living standards and national affluence. Nonetheless, fears that an aged population leads to
economic stagnation and public bankruptcy are widespread. In justification for cuts to public
programs and the transfer of costs and risks from the state to individuals and families, the projections
of social expenditures, in particular those based on ageing, are frequently identified as overgenerous
and unsustainable in many G20 countries such as Australia and New Zealand. Claims based on a
Intergenerational research methodologies and frameworks, a relatively new and innovative approach
to using data projections, have proven to be important in these policy debates. This article explores
their application for understanding the impact of ageing on the economy in the globalised world of the
twenty-first century.
1 Department of Sociology, Macquarie University, Sydney, Australia 2109;
correspondence: [email protected]
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1. Introduction Socio-Economic Perspectives on Ageing
There are many reasons that social gerontologists and other readers of this journal might find to
celebrate extra years of life and the growth of the ageing population that we are now experiencing
globally. However an alternative perspective that sees ageing as a source and leading indicator of
social and economic deterioration has wide currency and is commonly promoted as a form of self-
evident common sense by prominent figures including well known economists and policy makers. In
the more extreme versions of this view, population ageing is seen as a direct cause of economic
stagnation and decline and as potentially precipitating conflict between the generations over scarce
financial resources. A closely related variant sees ageing as a particular economic and fiscal
challenge for governments that can only be met by reducing public spending. This prescription
applies especially to expenditure on older people, although calls to reduce taxes and public spending
and other impacts of this approach are by no means restricted to senior age groups.
These opposing perspectives guide research and policy as well as informing the public imagination.
They thus represent more than just alternative optimistic and pessimistic orientations to population
ageing. They are significant not just as matters of personal belief, but as conceptual frameworks that
pose fundamental and serious questions for anyone interested in ageing. This paper seeks to address
two key questions:
1. Is demographic ageing linked to economic growth and development?
This question concerns the broad link between ageing and prosperity. This is in many ways a
historical question for advanced economies today, although it remains significant on a global scale as
the process of demographic ageing is no longer confined to Western Europe, North America and
Australasia but is becoming more globally extensive and accelerating in its rate of progression.
2. Is an ageing population an asset or a hindrance in the pursuit of long-term sustainable prosperity?
The second question is closely related the first but is typically posed as a concern for the future. Yet
because the future has not yet occurred and remains a matter of conjecture, researchers are required to
rely on projections, forecasts and statistical modelling. In consequence, the answers to the question
depend very much on the theoretical assumptions that underpin the collection of data and associated
methodologies used to in the modelling stage.
The following section of this paper summarises research concerned with the phenomenon that
demographers refer to as ‘the demographic transition’. A short overview of two influential and
widely cited analyses that attempt to address the impact of population ageing in more conventional
strategic analysis and journalistic ways, with results that are often described by critics as
‘apocalyptic’, follows in the section three, along with a brief discussion of other related
macroeconomic analyses.
Section four then turns to a relatively new set of approaches which each use an intergenerational
approach. The first, ‘Generational Accounting’ (1), now widely used by governments across the
OECD, is based on calculations of existing and future taxation transfers between generations. The
results are widely associated with calls for budget cuts, privatisation and fiscal restructuring intended
to reduce public expenditure on older aged citizens. The second, ‘Generational Economics’ (2)
extends beyond the cost of public expenditure to include other available data on transfers between age
groups. Of particular importance is the inclusion of savings and of economic transfers in families.
The results of the application of each of these approaches are important for policy makers and others
concerned with ageing populations, but it is argued that the consequences of the theoretical
assumptions and the limitations of the methodologies are poorly understood.
2. The demographic transition and economic growth
Data on population ageing in developed countries shows that it to be closely related to economic
development. National and international statistics confirm a strong historic link between economic
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growth and increasing life expectancy, leading to longer lives. A reduced birth rate reducing the
proportion of children adds to the phenomenon that we refer to as demographic ageing (3). As shown
in Table 1, the result is that a far higher proportion of those in what the United Nations terms ‘more
developed regions’ were aged either over 65, or above 80 in 1980 than in the ‘less developed regions’.
The proportion had increased significantly by 2013. Population ageing is projected by the U.N. and
other authorities to continue through to 2030 and 2050, with particular growth in the 80+ age group,
an age at which the use of medical services is increased and the need for ongoing care is pronounced.
Table 1. Proportion of Population at Older Ages in More and Less Developed
Regions (pct of total population).
Age 1980 2013 2030 2050
More developed regions
Total 65+ 11.7 16.8 22.5 25.8
80+ 2.0 4.5 6.4 9.5
Female
65+ 14.0 19.1 25.0 28.5
80+ 2.7 5.8 7.8 11.4
Male
65+ 9.2 14.5 19.8 23.0
80+ 1.3 3.2 5.0 7.5
Less developed regions
Total 65+ 4.1 6.1 9.6 14.0
80+ 0.5 1.1 1.5 3.2
Female
65+ 4.6 6.7 10.4 15.2
80+ 0.6 1.3 1.8 3.8
Male
65+ 3.7 5.5 8.7 12.8
80+ 0.4 0.9 1.2 2.7
Source: U.N. 2013. United Nations Population Division, Profiles of Aging 2013,
http://esa.un.org/unpd/popdev/AgingProfiles2013/default.aspx September 2014
Demographers describe the move as the ‘demographic transition’ (4). This occurred in two distinct
but closely related stages. In the first, beginning roughly towards the end of the eighteenth century in
industrialising Europe, life expectancy increased slowly. As Christine Victor (5: 64) notes, the
increases were ‘due to changes in economic development, material well-being, medical advances and
the development of public health measures leading to control infectious diseases’. Increased
agricultural production, for example, helped reduce starvation, while employment in industry
gradually increased incomes with positive impacts on many aspects of health and wellbeing. From
the late 19th century onwards, social legislation regulating matters such as employment and workplace
health and safety also became increasingly significant. These developments led to a reduction in
deaths in childhood, youth and early adulthood allowing more and more people to survive into old
age. In the second stage, birth rates declined. The need for large numbers of children ceased as the
need to replace children lost to childhood mortality was reduced. Again, a number of socio-economic
factors played a part. These included massive expansions in public education and overall literacy
levels and the move from rural to urban living and employment patterns (6, 7).
The extension of the average life expectancy by more than thirty years in Western Europe and most
advanced countries over the twentieth century, needs to be viewed not just as a by product of
increasing affluence but, as Phillipson points out, as a ‘major achievement for public health and state
intervention in welfare’ (8: 19). As shown in Table 2, continued improvements in life expectancy are
evident today on every continent, as are birth rates in many European and East Asian countries that
are below replacement level (9).
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Table 2. Life expectancy at birth and total fertility rate 1950-2050
Area
1950-55 2005-10 2025-30 2045-50
Africa Life Exp (yrs)a 38.7 54.1 61.2 67.4
Total Fertility Rateb 6.63 4.61 3.23 2.4
Asia Life Exp (yrs) 41.2 68.9 73.6 76.8
Total Fertility Rate 5.73 2.35 2.01 1.9
Europe Life Exp (yrs) 65.6 75.1 78.9 81.5
Total Fertility Rate 2.65 1.5 1.65 1.8
S. America Life Exp (yrs) 52 73 77.1 79.8
Total Fertility Rate 5.66 2.18 1.76 1.8
N. America Life Exp (yrs) 68.8 79.3 81.6 83.5
Total Fertility Rate 3.33 2.04 1.84 1.85
Oceania Life Exp (yrs) 60.4 76.4 79.7 82.1
Total Fertility Rate 3.83 2.44 2.18 1.98
World Life Expectancy (yrs) 46.6 67.6 72.1 75.5
Total Fertility Rate 4.92 2.56 2.21 2.02
Notes: a. Life expectancy at birth in years, both sexes combined; b. Total fertility rate: children per woman.
Source: Author’s calculations based on United Nations Secretariat, World Population Prospects: 2008 Revision, Medium variant,
http://esa.un.org/unpp January 2011.
It is also clear from the UN statistics in Table 1 and 2 that ‘less developed’ regions of the globe are
also ageing. With the notable exception of some parts of the Middle East, the demographic changes
that took 150-200 years and more in Western Europe and North America are occurring today at a
much accelerated rate in developing countries in Asia, Latin America and Africa, including in many
of the ‘less developed’ regions and poorest countries (9, 10). Economic development, although still
apparent in the rising incomes of many previously less developed countries, may today be less central
than previously. Education, public health measures, access to health care and contraception, and other
factors such as increased food production are now able to provide much of what once only available
through the distribution of the surpluses that were the product of successful economic development
(11). The causative link between economic development and ageing is thus clear when we look back
through recent history. The economic impact of the much higher proportions of older people
projected for the next forty years, however, remains more contentious.
3. Apocalyptic Economics?
The view that new and projected demographic profile are unsustainable, the cause of existing and
future conflict between generations that will reshape both national and global order finds support
today in many reports and popular books. An interesting example is the report on global ageing
published by the Central Intelligence Agency (CIA) in 2001 that examined the demographic
challenges and assessed how these are translated into ‘security issues of interest to the United States’
(12: 3). Population ageing is portrayed as having far-reaching negative fiscal and economic effects on
global economic, military and political power. An important strand of the CIA’s analysis concerns
the economic impacts of sustaining large and non-productive surplus populations. With the public
debt rising in ageing countries as social spending increases to meet the entitlements of the increasing
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number of elderly, the report argued that pressure would increase on interest rates, crowding out
productive investment.
Focussing more on the implications for individuals, families governments and corporations, Fishman
(13) develops many of the same themes. He argues that ageing is the ‘hidden force’ behind
globalisation, as corporations move production from ageing countries with high labour costs to
countries with low cost youthful workforces. Ageing is also portrayed as the cause of falling
expenditures on public education and of the degraded, casualised employment on offer to younger
generations, the most recent entrants to the labour force. The need to underwrite the support provided
older people, he maintains, holds back families, communities and national governments and is causing
problems for younger generations deprived of resources as older generations, especially the ‘baby-
boomers’ born in the decades after WWII, lead privileged lives, commandeering resources that are
needed elsewhere. This reiterates Thomson’s highly controversial analysis of New Zealand social
policy (14). The approach reflects what other commentators have termed ‘intergenerational conflict’
(15, 16).
Like many other accounts of what has been dubbed ‘apocalyptic demography’ (17, 18) Fishman and
the CIA see population ageing as involving the support of large numbers of dependent, unproductive,
older people. Ageing in this view represents a form of depleted and burdensome negative human
capital, youth as the source of vitality. The analysis condemns many of the ideas such as
redistribution and public risk sharing that underlie social policy in most advanced economies and
ignores issues such as the economic value of public and private savings for old age and retirement ,
and the positive contributions of older people within the family.
These analyses present political and personal views as impartial assessments. They do this by
drawing together data on population projections with value judgements that see in ageing a form of
dependency and waste, in which vitality and productivity is linked simply to youth. These
assessments are then linked to specific issues or social case studies in a manner that is portrayed as
objective but which in fact conceals the value component of their assessments. Without a sound
theoretical and analytic framework, the results of such accounts are at best problematic.
A number of economic studies address this by measuring the impact of demographic change on
projections of specific macroeconomic variables. Perhaps most well known are econometric studies
that focus on the aggregate impact of specific demographic variables such as dependency rates on
aggregate savings or investment (19). Using a variant of this approach, the IMF used data from 115
countries, to identify strong negative impact of the elderly dependency ratio on savings and the
current account balance (20). McKibben, in contrast, developed a regionally based global economic
model (a version of what he terms ‘the MSG-Cubed model’) incorporating demographic dynamics, to
examine the consequences of demographic change on the world economy from 2005 to 2050 (21, 22).
The model is informed by extensive data on a significant number of economic variables and recent
economic behaviour in each country or region included in the model, so for example, rather than
assuming that all males work till the age of 65, changes in earnings at different ages are used in the
model to compute more accurate projections. The results show that ageing will have macroeconomic
impacts (both positive and negative) on economies at the domestic level as well as through global
feedbacks affecting ‘growth, trade flows, asset prices (real interest rate and real exchange rates) and
investment rates’ (21: 121). Like other economic modelling, however, the results are directly affected
by the assumptions inherent in the data and the mathematical modelling and the authors point to the
need for further work refining these assumptions.
4. Intergenerational approaches
Assumptions about economic exchanges between people at different ages are a key problem facing
economists estimating future economic impacts. Intergenerational perspectives that purposefully
address these exchanges hold the promise of a more systematic and reliable approach to the topic.
Although Mannheim pointed to the importance of generations from a socio-historical perspective as
early as 1924 (23), generational analysis is a relatively new and still emerging conceptual approach
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(24). The concepts of ‘generation’ and ‘inter-generational’, are new, imprecise and often confusing
terms, especially when applied to the public field (25). They are nevertheless frequently asserted as
self-explanatory analytic frameworks for addressing issues concerning relationships between and the
transmission of values, resources and assistance between what is probably better thought of as age
cohorts. The terms are used, often interchangeably, in a variety of disciplines and at different social
levels, their coverage extending from a concern with micro-relationships within family systems , to
macro historical level analyses of political and economic change (26-29).
Perhaps the most influential application to date in economics and public policy has been that termed
‘Generational Accounting’ (GA), based on an economic forecasting model developed by Laurence
Kotlikoff and colleagues in the US (1, 30, 31). The model provides a theory of generational costs and
expenditures and a methodology to analyse taxation, public expenditure and taxation transfers
between age groups now and into the future. The combination of demographic calculations with
economic projections and forecasts provides convincing economic data with which to address public
debates about public expenditure and ageing, although questions need to be raised about the value of
many economic projections and the validity of the demographic categories and assumptions built into
the approach. Nevertheless, as Williamson and Rhodes (31: 50) show, the approach has been
enormously influential in the US and internationally, not least because ‘the proponents of the model
were particularly adept at addressing popular and academic audiences simultaneously.’ A widely read
book by Koltikoff and Burns (32) for example, used GA projections to advocate sweeping cuts to
social security and other welfare programs, a theme that influenced and resonated strongly with
national politics under George Bush in the USA at the time.
A common criticism of the GA approach is that it plays into the popular culture by homogenising
entire ‘generations’ and portraying them as unified and as conscious and purely self-interested
political actors. This ignores inequalities within generations, treating all baby boomers, for example,
alike and attributing to them policies which often developed independently and with which many
would disagree. The extensive inequality within generations (such as between independently wealthy
older landlords and older private tenants dependent on minimal public pensions) and the need for and
extent of redistribution within as well as between generations is completely obscured. Similarly, the
very substantial proportion of national budgets that are not raised directly from individual taxpayers
but derive from corporate taxes, royalties on minerals and so forth is ignored, as are the costs of many
hidden transfers, in particular tax expenditures, the public income forgone through tax concessions
(33, 34). As Williamson and Rhodes (31: 48) note, the GA approach is embraced by those who use
the results of the projections as arguments to bolster their case for cutting social spending. Most
progressive economic analysts reject narrowly defined concepts such as the innocent sounding
‘intergenerational equity’ which represents the single minded pursuit of equal expenditures between
age cohorts, in favour of policies that promote equity on an ‘intra-generational’ basis, therefore taking
into account the need to address and reduce inequalities based on income, class, ethnicity, race and
gender across as well as within age categories.
In Australia, the GA approach has been promoted by the Australian Treasurers under the Charter of
Budget Honesty Act (1998) (35) in line with OECD advice (36). The first Intergenerational Report
(37) was issued as Budget Paper 5 in 2002 by treasurer Costello. A second less pessimistic report was
issued in 2007, again under Costello (38). Each showed projected fiscal pressures attributed to the
impact of population ageing under existing and projected policies. Costello used these two reports to
justify cut backs in national programs and to argue for transferring the risk from government funded
programs by cutting taxes and leaving individuals to fund their own support. Australia’s introduction
to the approach was thus as a fiscal framework promoting privatisation and risk shifting towards
individuals, promoting increased reliance on the market and decreased responsibility for public
provision.
The third report (39) issued under Treasurer Swan was more optimistic, although still projecting
budget deficits based on the cost of ageing. The main public message concerned the importance of
continuing immigration as a moderator of population ageing. Interestingly, the date at which public
deficits related to ageing was extended in each subsequent report: from 2014, then 2024, due to ‘due
to a lower rate of growth of projected spending per person and higher projected nominal GDP per
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person’ (38: 80). By the third report, age related deficits are projected, but not before 2030. Despite
the different results, the message in each of the reports is that population ageing is a problem for the
economy and that social expenditures need to be continually reviewed and constrained.
Generational Economy Framework
Providing what they term ‘a global approach’ to the issue, Lee and Mason (2, 40) have gone well
beyond GA in the development of the ‘Generational Economy’ (GE) framework. Their focus is not
confined to public expenditures in advanced economies, but to familial as well as public transfers in
developed, developing and traditional economies. Their approach considers income, savings and
consumption spending in families as well as in national accounts (2). The GE theoretical framework
is used to drawing together data on what they term ‘intergenerational’ aspects of earnings,
consumption, spending, savings and transfers over the ‘life cycle’ in a range of different economic
settings, from traditional hunter-gather societies to contemporary economies at different levels of
development, operating under a wide range of political systems (41). The approach has been adopted
by the UN’s Department of Economic and Social Affairs and promoted as the methodology for the
National Transfer Accounts program (42).
The essence of their methodology is based on ‘a generational perspective’ in which two important
concepts, ‘life-cycle wealth’ and ‘transfer wealth’ are central (2). Reliance on income created through
labour and the need to support those at different points in their life course (in particular early
childhood and old age) who are unable to produce their own income, they argue, has led to the
development of intergenerational social responses that differ between societies. To examine how this
operates in practice in different economies, the GE approach calculates the average age of earnings
and of consumption and uses this to compare wealth transfers in public and private transactions. In
this view, private transfer wealth is a form of familial support exchanged between generations, whilst
public wealth transfer involves the sorts of income support and other programs that social policy in
developed economies. Their calculations are presented in a series graphs and figures that graphically
demonstrate the direction of transfers between generations.
Although it is not possible to do cover all aspects of this work in a short article, the authors’ summary
of a number of their key findings is concise and significant:
Private transfers flow strongly downward in every society, whereas the net direction of public transfers is
downward (old to young) in some societies and upward in others (mostly rich). Total transfers, the sum
of public and private, flow downward in almost all countries, implying that modestly older age structures
would be economically advantageous. However, the low fertility that prevails in many rich countries
today will lead to much older age structures and a reversal in the direction of total transfers. For them,
higher fertility and younger age structures will be advantageous (43: 80-81).
Because ageing is associated with savings and the accumulation of resources, the finding that there is
a net transfer of resources from older generations towards younger ones within the family is not
surprising. It is only in the public sphere of advanced welfare states that there is evidence of a flow of
resources the other way, and even then it is neither inevitable nor necessarily detrimental. Indeed,
when both public and private transfers are taken into account, the global NTA results to date suggest
that ‘modestly older age structures may be economically advantageous’ (my emphasis).
It would be foolish to think that these findings are final or that they can or should allay all concerns
about the economic impact of population ageing. The GE approach is limited by the available data,
the System of National Accounts on which they are based, which provide only a cross-sectional
snapshot of annual transfers, and often this is limited by reliance on national data supplemented by
survey and other data to fill in gaps concerning issues such as family transfers(42: vi-vii). There are
also technical problems concerning the unit of analysis, the household or the individual, and there are
serious omissions in the data, in particular the failure to include many important unpaid home based
production activities, such as cooking, childcare or elder care. Other informal and unpaid work,
including volunteering, is also not included. In addition to household production, the authors also
identify limitations and challenges in a number of other dimensions, including gender and time use,
and in the inclusion of inequality and poverty (42: 52-53).
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5. Conclusion – generational policy options?
Although it sounds systematic and comprehensive to deploy an intergenerational approach to the
estimation of the economic impacts of ageing, the current approaches each demonstrate significant
limitations. Importantly, many of the critiques of GA also apply to the GE approach. Generations are
not homogenous and equal social groupings – indeed it is only within the family that it is possible to
clearly identify one generation from the next. Across societies issues of inequality powerfully divide
people of similar ages and are arguably more important than differences based purely on age. The
need to provide support to the disadvantaged and the socially excluded has been fundamentally
important for social policy over the past century in advanced economies and necessarily entails a
degree of transfer of resources (redistribution) between those of similar ages as well as across
different points in their life course.
Significant issues of social difference, including gender, disability, ethnicity and personal capacity are
obscured in the existing intergenerational economic frameworks, but continue to remain important.
Policies based on reducing social expenditure and transferring costs to private households risk
increasing problems that the original measures were set up to overcome. When such decisions are
based largely on projected deficits linked to demographic ageing, there are good reasons to be
particularly cautious.
Just as it is important to acknowledge the limits of the concept of generations, it is necessary to point
to problems in assumptions concerning ‘generational capture’ of resources. There is no evidence that
older age groups act as unified political actors in any way comparable, for example, to the way that
social classes were held to act in support of political programs that were in their common interest
(29). This may be because voters do not simply act selfishly but instead make political choices on the
basis of complex social affiliations and lifelong identities. Older landlords who earn income from
rental property they own, for example, are likely to make different choices to older renters. Similarly,
voters who are grandparents are unlikely to vote in ways that might permanently damage their grand
children.
The evidence reviewed in this paper demonstrates that economic growth and ageing have historically
been closely linked. However one dimensional analyses that see ageing simply as a cost obscure and
confuse our understanding of the challenges of adapting to an unprecedented demography in which
old age will become more common place than ever before. Intergenerational economic analyses hold
the promise of overcoming these limitations by identifying the dependencies and capabilities at
different ages from a life course perspective, open up aspects of policy and family life related to the
life course in a way that focussing on ageing as a stand alone issue will never be able to achieve.
While there are many promising elements in the sophisticated approach of generational economics,
the current intergenerational frameworks are not capable of providing a reliable picture of the future
economic costs and benefits of population ageing.
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