Searching for a Balanced System of Innovation Incentives

Transcription

1 Searching for a Balanced System of Innovation Incentives An International Perspective A presentation to: The Sixth Annual Research Money Conference "Are Canada's Business R&D Incentives Working?" Ottawa, March 8, 2007 JPW Innovation Associates Inc. 1

2 Contents Canada and the world Comparisons of fiscal support Policy Issues Incentive design Policy options Conclusions Future of tax incentives What s next for Canada JPW Innovation Associates Inc. 2

3 Canada and the World Canada relies heavily on fiscal support of R&D (% of GDP) 0.25 Direct government funding of BERD Costs of fiscal incentives United States (2001) France (2002) United Kingdom (2004) Norway (2004) Austria (2002) Australia (2004) Netherlands (2005) Canada (2004) Japan (2003) JPW Innovation Associates Inc.; OECD

4 Canada and the World but it does not translate into high business R&D intensity Country R&D/GDP BERD/GDP Availability of R&D Tax Per Cent OECD Rank* Per Cent OECD Rank* Incentives/Trend Canada Australia France Japan U.K. USA Austria Most improved Sweden Finland OECD * Of all 30 member countries, 2005 or most recent available year Source: OECD, Main Science and Technology Indicators, , Paris, Tables 2and Volume tax credit Hybrid tax allowance Hybrid tax credit Volume tax credit Volume tax allowance Incremental tax credit Hybrid tax allowance or refundable to all tax credit Not available Not available JPW Innovation Associates Inc. 4

5 Canada and the World More countries employ tax incentives Before-tax price of R&D A strong uptake in R&D tax incentives in recent 7 years - in Europe and Asia. Denmark France Ireland Netherlands Belgium Norway Spain U.K. Japan Korea Canada Fed JPW Innovation Associates Inc.; OECD 5

6 Canada and the World Canada s R&D tax subsidies are internationally generous Chart 1: Tax Subsidies for R&D: A Case of Small Firm, Canada and OECD, 2006 Chart 2: Tax Subsidies for R&D: A Case of Large Firm, Canada and OECD, 2006 Canada Spain Mexico Portugal Czech Netherla Norw ay France Hungary Japan Denmark Korea Australia UK Belgium Austria US Ireland Poland Finland Sw itzerl Iceland Sw eden Greece NZ Italy Germany Tax subsidy per $1 of R&D Spain Mexico Portugal Czech Canada Norw ay France Korea Hungary Denmark Japan Australia UK Belgium Austria Netherla US Ireland Poland Finland Sw itzerl Iceland Sw eden Greece NZ Italy Germany Tax subsidy per $1 of R&D JPW Innovation Associates Inc., OECD 6

7 PEI A O BC Q NS NB SK NF M Canada and the World Provinces top up Canada s generosity Tax Subsidies for R&D, Large Firms Canadian Provinces, 2006 Tax subsidies for R&D, Small Firms Canadian Provinces, 2006 QU Tax subsidy per $1 of R&D MB ON NF NB NS SK BC AB PEI Tax subsidy per $1 of R&D JPW Innovation Associates Inc. 7

8 Canada and the World Tax incentives are going beyond R&D Incentives for enterprise formation Young innovative companies: FR, BE Venture capital incentives: UK, IE, BC Technological Development Incentives: ES, PEI Technology Transfer (Patents): ON Training Incentives: JP, KO, AT, FR, QUE, ON Collaboration incentives: JP,DK, BE, HU, ES, QUE, ON JPW Innovation Associates Inc. 8

9 Canada and the World Training incentives become significant Tax Subsidy QC ON AT FR JP KO ES large small v. small JPW Innovation Associates Inc. 9

10 Canada and the World Collaboration incentives are gaining Tax Subsidy QC ON DK ES JP BE Large Small JPW Innovation Associates Inc. 10

11 Canada and the World Trends in business support Two thirds of OECD countries have R&D tax incentives in place Canada has a prominent place Holistic innovation support emerging Canada s place not so prominent Where federal Canada is missing the boat provinces are picking the slack, e.g. in incentives for training and collaboration Where is the direct public support? JPW Innovation Associates Inc. 11

12 Policy Mix Issues Logic of state intervention Rationale Choice of tools 1st order effects 2nd order effects 3rd order effects High social return... Firms underinvest in R&D Direct measures or fiscal incentives Increased R&D at firm level Increased profits at firm level Benefits at macro level: TFP, growth, quality of life EU/CREST Working Group Source: EU/CREST Working Group

13 Policy Mix Issues Basic forms of support Grants & subsidies Tax incentives More targeted Pre-set budget More costly to administer? More neutral More accessible Less costly to administer? Source: EU/CREST Long term? Short term? JPW Innovation Associates Inc. 13

14 Policy Mix Issues Direct vs. tax support in EU-17 A Significant Shift to Fiscal Incentives 10 8 Finland, Sweden Germany Number of countries Strong direct, unfavouarble tax Little direct, unfavourable tax Little direct, favourable tax Strong direct, favourable tax JPW Innovation Associates Inc.; European Commission,

15 Policy Mix Issues Goal: Increase risky research/ inventions Policy design depends Narrower R&D definition Narrower expenditure base (less D) De-linking from current profits (refund, wages) Collaborative R&D Policy Tools: Grants and subsidies; incremental tax credits on national goals Goal: Increase general uptake of new knowledge and innovation Broader R&D definition (e.g. new to the firm) may include innovation Broader expenditure base Policy Tools: Tax credits based on volume of R&D, incentives for innovation, networks, regulations, new facilitating institutions Source: Jan Nill, EU/IPTS JPW Innovation Associates Inc. 15

16 Policy Mix Issues Policy objective and incentive design Explore novel and generic research directions (limited appropriation of returns) Grants and subsidies, refundable incremental tax credit, research wages tax credit Promote linkages between elements of the science and innovation system Non-incremental tax schemes, collaboration incentives, grants and subsidies Encourage uptake of new knowledge by business Broadest inclusion of R&D costs, a volume-based R&D tax credit, possibly including some innovation costs Source: Jan Nill, EU/IPTS JPW Innovation Associates Inc. 16

17 Conclusions What the future holds Pressures to address business innovation will continue to influence policy mix Direct support to business innovation remains important (OECD) Focus on innovation linkages (networks, partnerships) Tax credits will survive but may not be as generous as they are now Countries streamlining: ES, JP, AU Countries evaluating: UK, NO, NL, AT JPW Innovation Associates Inc. 17

18 Conclusions Do R&D tax incentives work in Canada? Evidence supportive but dated New evaluation required Include direct support context Look at overall business tax regime How do tax incentives interplay with business taxation? How generous should R&D tax incentives be? JPW Innovation Associates Inc. 18

19 Conclusions What s next for Canada? Adapt to current business needs: Expand SR&ED thresholds Make SR&ED refundable to non-ccpcs, etc Rethink the balance: fiscal direct Design new mix of incentives Reward merit and competitiveness of projects Work with provinces New facilitating institutions required? A quick fix solution? A better solution? JPW Innovation Associates Inc. 19

20 The art of explaining tax expenditures lies in knowing where to stop. Roger Heath Thank you I welcome your questions JPW Innovation Associates Inc. 20