OECD Economic Surveys OECD Economic Surveys SWEDEN
SWEDEN Executive Summary
July 2021 JULY 2021
• Regional disparities are widening
NCH N
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IO
• Policy needs to lay the foundations for a sustainable recovey
LA
• The pandemic has taken a heavy toll
VE S R
2 . OECD ECONOMIC SURVEY OF SWEDEN – EXECUTIVE SUMMARY
Main findings Buttressing livelihoods and demand • Many economic branches, especially those requiring face-to-face interaction, and their workers still suffer from the COVID-19 crisis. • Fiscal policy supports the economy. As the recovery will be gradual and will require resource reallocation, continued fiscal support will be needed to ensure a solid recovery. • The zero policy rate and measures to improve liquidity and facilitate lending have stabilised the financial system and support the recovery. • The mortgage amortisation requirement was lifted early in the pandemic, but will be reinstated from September 2021. Implementing reforms to support growth and employment • The social partners have reached an agreement for broad labour market reforms, introducing more job flexibility and security, to be implemented by mid-2022. • The tax wedge on labour remains high despite some shift towards environmentally-related taxation. Existing property taxation arrangements are regressive and raise housing prices. • Ageing will push up government spending and reduce labour supply over time in the absence of reforms. • Strict rental regulations tend to discourage mobility, notably for low-income households, and may contribute to spatial segregation. • Inefficient land-use planning and low incentives for municipalities to encourage construction contribute to housing shortages, which reduce affordability and labour mobility, despite useful recent measures to release land for development and speed up planning processes. • Skills mismatch generates unemployment, particularly for the low-skilled and foreign born, whose position is further weakened by the COVID-19 crisis. Strengthening gender equality • The employment rate of foreign-born women is much lower than that of natives. Greening growth • Road transport accounts for about a third of total greenhouse gas emissions. The government has taken several steps to reduce emissions from the sector, but a clear overall strategy is still missing. • Fuels used by agricultural, forestry and fishery machinery generate sizeable CO2 emissions and benefit from reduced carbon and energy tax rates. Keeping regional inequality in check • The share of earmarked grants has increased over recent years. These grants are in some cases narrowly targeted and short-term, which makes efficient use challenging. • The fiscal equalisation system is complex and generally perceived as lacking transparency. A commission reviews the system every five or six years, but monitoring and discussion between reviews is limited. • Digital tools offer potential for providing better services and raising efficiency. User demand looks strong, notably in health and education. Digital capabilities vary widely across local authorities. • Universities contribute to a varying degree to regional development by fostering and helping retain local talent and by strengthening competitiveness and business dynamism through participation in local research and innovation networks. • Strategic spatial plans and coordination between government entities and with other stakeholders are insufficiently developed. Coherent development plans could increase job and business opportunities within functional labour market areas.
OECD ECONOMIC SURVEY OF SWEDEN – EXECUTIVE SUMMARY . 3
Key recommendations Buttressing livelihoods and demand • Maintain support measures, such as reinforced short-time work and compensation for lost turnover, until the COVID-19 pandemic subsides. • Maintain strong fiscal policy support until the recovery is well established and gradually move back towards the budget surplus target over the medium term. • Maintain accommodative monetary policy until inflation is durably close to target, with activity on course to expand at a robust pace. • If household debt continues to rise rapidly, tighten macroprudential policy. Implementing reforms to support growth and employment • Implement the labour market reforms agreed by the social partners. • Shift taxation further away from labour and towards environmentally-related taxes and recurrent taxes on immovable property, including through phasing out mortgage interest deductibility. • Implement the pension reform which raises the maximum age for the right to remain in employment and the minimum ages for receiving state old-age and basic pensions in line with developments in life expectancy. • Ease rental regulations to incentivise rental housing supply, while maintaining tenant protection against abuse. • Enhance co-operation between central and local government in land-use planning and increase incentives for municipalities to facilitate the timely release of development land. Simplify land-use planning procedures, balancing economic, environmental and social considerations. • Strengthen adaptation of vocational education and training to labour market needs by reinforcing regional coordination structures. Strengthening gender equality • Mainstream the pilot Equal Establishment programme for foreign-born women. Greening growth • Elaborate a roadmap for cost-efficient and technology-neutral decarbonisation of road transport. • Phase out reductions in carbon and energy taxes for fuels used in agriculture, forestry and fisheries. Keeping regional inequality in check • Limit the use of earmarked grants to strategic areas. • Avoid excessively narrowly targeted and short-term grants. • Simplify the fiscal equalisation system and/or increase transparency. • Introduce monitoring on an ongoing basis to facilitate adjustments. • Develop further on-line public services delivery. • Enhance the public infrastructure for data and information sharing. • Strengthen incentives and support to raise the contribution of universities to regional knowledge and innovation. • Strengthen multi-level governance, including coordination of sector policies and cooperation between government entities and other stakeholders, to enhance strategic cooperation for regional development.
4 . OECD ECONOMIC SURVEY OF SWEDEN – EXECUTIVE SUMMARY
The pandemic has taken a heavy toll The COVID-19 pandemic drove the country into a severe recession, despite resolute policy action to protect households and businesses. Vaccination will support the recovery, but risks remain. Infection rates have been high. Despite softer distancing measures than in most other OECD countries, the pandemic has hampered economic activity, notably in sectors requiring face-to-face interactions (Figure 1). The latest infection wave is coming under control only slowly, despite the introduction of stricter distancing measures. Figure 1. Mobility trends in Sweden % deviation from baseline, 7-day moving average 40
Figure 2. GDP is picking up after a sharp fall Index, 2019=100 106 104 102 100 98 96
20
Sweden
94
0 -20
90
-40
Other Nordics 2019
2020
2021
2022
Note: Other Nordics is an unweighted average of Denmark, Finland and Mainland Norway. Source: OECD Economic Outlook 109 database.
-60 -80 Feb-20
OECD
92
May-20
Aug-20
Nov-20
Feb-21
May-21
Note: Mobility for retail and recreation. Comparison relative to a baseline day before the pandemic outbreak. Baseline days represent the median value for that day of the week over the five‑week period from 3 January to 6 February 2020. Source: Google LLC, Google COVID-19 Community Mobility Reports. .
The economy has shrunk. Output shrank by about 8% (q-o-q) in the second quarter of 2020 and 3% for 2020 as a whole (Figure 2), which is in line with the performance of the other Nordics. While industrial production rebounded after disruptions in supply chains in the spring of 2020, service activity remains muted, as the pandemic lingers, hampering face-to-face interactions. GDP is expected to recover gradually when distancing measures are eased. Private consumption will be supported by high savings, but its growth may remain subdued due to uncertainty and higher unemployment (Table 1).
Table 1. The economy is bouncing back Volume % change, unless otherwise specified Gross domestic product Private consumption
2020
2021
2022
-3.0
3.9
3.4
-4.7
3.2
4.6
Gross fixed capital formation Exports
0.3
4.8
4.3
-5.6
10.7
4.6
Imports
-6.2
9.3
5.0
8.3
8.4
7.5
0.5 1.7 Current account balance 5.2 6.4 (% of GDP) General government budget balance (% of -3.1 -3.3 GDP) 1. CPI with fixed mortgage rate. Source: OECD Economic Outlook 109 database.
1.4
Unemployment rate (% of labour force) Inflation (CPIF1)
6.2 -1.6
INTRODUCTION OECD ECONOMIC SURVEY OF SWEDEN – EXECUTIVE SUMMARY . 5. 5
Vaccines offer hopes for a return to normal life, which would boost the recovery, but uncertainty remains high. Possible setbacks in vaccination campaigns and the spread of new variants of the virus could delay the recovery. As a small open economy, Sweden is exposed to global trade tensions and with a large banking sector highly reliant on wholesale funding, it is vulnerable to international financial turbulences. Fiscal policy has propped up the economy. Fiscal space, with gross government debt at around 35% of GDP before the crisis, has been appropriately used to damp the recession. The budget balance moved from a small surplus in 2019 to a deficit of more than 3% of GDP in 2020 and 2021, which provides strong support to the economy, even though it is relatively small by OECD standards (Figure 3). Fiscal policy needs to continue supporting businesses and households affected by the pandemic. Monetary policy is highly expansionary. The Riksbank projects that its policy rate will stay at zero until at least end-2023 and has stepped up its bond buying programme in response to the pandemic. It has also provided ample liquidity to stabilise the markets and support for lending. As inflation is projected to be below target for the foreseeable future, continued monetary accommodation is appropriate. The scope for further loosening is limited, as negative policy rates may lower bank rates only marginally, the size of the government bond market is limited and mortgage and corporate bond-buying could fuel excessive risk taking, notably in property markets.
Some financial vulnerabilities remain. The banking sector is solid, although interconnectedness and reliance on wholesale funding create vulnerabilities. Household debt is high and housing prices are rising rapidly. In response, the mortgage amortisation requirement, which was lifted during the pandemic, will be reinstated in September 2021. If fast housing price increases continue, macroprudential policy should be tightened. The banking system is also exposed to potential losses from commercial real estate, which faces heightened uncertainty in the wake of the pandemic. Figure 3. Fiscal policy is expansionary Government net lending % of GDP 2
Sweden
OECD
Other Nordics
0 -2 -4 -6 -8 -10 -12
2019 2020 2021 2022 Note: Other Nordics is an unweighted average of Denmark, Finland and Mainland Norway. Source: OECD Economic Outlook 109 database.
6. OECD ECONOMIC SURVEY OFSWEDEN – EXECUTIVE SUMMARY
Policy needs to lay the foundations for a sustainable recovery Labour market adjustment calls for reforms. Ongoing improvements in the insolvency framework will ease firm exits. Sweden should capitalise on its strengths in digitalisation and environmental policies to boost productivity and further green growth. Unemployment was rising even before the pandemic. Sweden was suffering from labour market mismatch, with unfilled vacancies coinciding with high unemployment for lowskilled workers and immigrants. The pandemic has exacerbated this problem, particularly for temporary and non-standard workers, as many vulnerable workers usually hold jobs requiring face-to-face interaction. Unemployment has risen further despite a generous short-time work scheme. Investment in skills is more important than ever. In response to the crisis, the government has allocated additional funds to increase the number of places in education. Measures taken in recent years to improve education outcomes are starting to bear fruit. Nevertheless, vocational education and training is still considered less attractive by prospective students and matches employer needs less well than in the best performing OECD countries, which calls for reinforcing coordination between public authorities, schools and firms. Strengthened cooperation with the social partners would also help address re-skilling and up-skilling needs, which the pandemic has increased due to digitalisation and structural change. Improvements in the insolvency framework could facilitate smooth business restructuring. The transposition of the European Commission Preventive restructuring directive approved by the EU Council in June 2019 into Swedish legislation should facilitate early-stage restructuring. Broad labour market reforms will increase flexibility and security. The social partners have agreed on a package of reforms to enhance flexibility, adaptability and security, which the government plans to implement by mid-2022. The reform will reduce the gap in employment protection between permanent and temporary workers, develop opportunities for retraining and re-skilling and strengthen unemployment insurance.
Easing rent control for new dwellings is part of the government programme. Over time, the reform would raise the dwelling stock, lower housing prices and facilitate labour mobility, notably for low income households. Digitalisation offers opportunities to boost productivity. The pandemic has accelerated the move towards on-line activities, in which Sweden was already a frontrunner. The government is raising investment to extend the coverage of broadband to rural areas. However, the share of tertiary graduates in ICT and data analysis is rather low, which contributes to holding back the diffusion of big data analysis and limits firms’ digital and data-driven innovation. While business R&D expenditure is among the highest in the OECD as a share of GDP, ICT accounts for a relatively small part. Overly frequent security breaches undermine trust in ICT tools, potentially slowing their adoption. Sweden has long been a leader in the fight against climate change. Carbon emissions per capita have been declining steadily since the 1970s and Sweden has set the ambitious objective of net zero carbon emissions by 2045. An independent climate policy council monitors the adequacy of policies to meet the climate goals. Having picked the low-hanging fruit in reducing greenhouse gas emissions, further progress is challenging. Road transport, industry and agriculture are the largest greenhouse gas emitters. The carbon tax rate for industries outside the EU Emissions Trading System (EU ETS) is now aligned on the general rate. The government supports ambitious and risky projects for decarbonising industry, for example through green credit guarantees. However, it lacks a clear roadmap for achieving CO₂ emission reduction in road transport in a cost-efficient way and to reduce emissions from agriculture.
OECD ECONOMIC SURVEY OF SWEDEN – EXECUTIVE INTRODUCTION SUMMARY . 7
Regional disparities are widening Geographic inequalities have become more pronounced, requiring policy adjustments. Regional inequality is low by OECD standards, but has been rising over the past decades, fuelling discontent in parts of the country whose inhabitants feel left behind. Large cities attract an increasing share of the younger population and enjoy higher productivity growth, while providing adequate public services to an ageing population is increasingly challenging in rural areas. Central government grants and fiscal equalisation support equal access to services around the country. However, the fiscal equalisation system and state grant design could be improved. Moreover, digitalisation could be used more effectively to enhance public service provision, including through developing further the public infrastructure for data and information sharing. Regional growth could be promoted further, in particular by strengthening the role of universities in regional knowledge and innovation networks and reinforcing urban-rural connectivity. This would create more economic opportunities for local and regional development and help foster well-being and social cohesion.
OECD Economic Surveys
SWEDEN
Resolute policy action to protect households and businesses has mitigated the pandemic’s toll on the Swedish economy, which nevertheless contracted sharply in 2020. Growth is picking up on the back of strong manufacturing activity and exports, while vaccination brings hope for a gradual return to normality in sectors requiring face-to-face interaction. Nevertheless, fiscal support and accommodative monetary policy will remain necessary until the recovery is well established. Government measures to expand education and training and to enhance job matching, along with the implementation of the labour market reforms agreed by the social partners, will help employment recover, particularly among the most vulnerable groups, which have been worst hit by the pandemic. Fostering inclusive growth throughout Sweden will require upgrading the sub-national government fiscal framework, enhancing public service efficiency, especially through digitalisation, and promoting regional convergence further, especially by strengthening the role of universities in regional knowledge and innovation networks. SPECIAL FEATURE: Regional inequality
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