Priorities and sequencing in privatization: Evidence from Czech firm panel data

While privatization of state-owned enterprises has been one of the most important aspects of the economic transition from a centrally planned to a market system, no transition economy has privatized all its firms simultaneously. This raises the question of whether governments privatize firms strategically. In this paper we examine the determinants of the sequencing of privatization. To obtain testable predictions about the factors that may affect sequencing, we investigate the following competing government objectives: (i) Maximizing efficiency through resource allocation; (ii) maximizing public goodwill from the free transfers of shares to the public; (iii) minimizing political costs; (iv) maximizing efficiency through information gains; and (v) maximizing privatization revenues. Next, we use firm-level data from the Czech Republic to test the competing predictions about the sequencing of privatization. Consistent with the hypotheses of a government priority on revenues and public goodwill, we find strong evidence that more profitable firms were privatized first. The sequencing of privatization is also consistent with maximizing efficiency through information gains. Our results indicate that many empirical studies of the effects of privatization on firm performance suffer from a selection bias.     

Privatization in PolandWhat was the government trying to achieve?1

This article uses the sequencing of privatization to infer the objective pursued by the Polish government in the privatization of its large manufacturing firms in the second half of the 1990s. We construct a model of mixed oligopoly and use it to evaluate the privatization process; our analysis is based on the assumption that firms which furthered the government's objective function the most would be chosen to be privatized first. Based on the features of the firms that were chosen for early privatization, our empirical analysis suggests that welfare maximization was more important than the desire to maximize the revenues from privatization and the government's budget or to minimize employment losses.     

国有企业改制对就业的影响——来自11个城市的证据

在20世纪90年代中后期,中国工业企业的就业规模大幅度下降,许多人认为,企业改制是其主要原因。本文通过对11个城市386家企业从1995年到2001年的面板数据的研究,评估了企业改制对就业的影响。我们的面板数据回归结果显示,和一般印象相反,改制显著地减缓了就业的下降趋势。我们还发现,改制对企业的就业增长有持续的和递增的积极作用。即使在控制了企业的绩效、就业条件、资产结构以及改制前就业历史之后,我们仍然得到相同的结论。另外,我们还使用了倾向分值匹配基础上的差分内差分方法对我们的结果进行了验证,也得到了相似的结论。     

中国国有企业民营化绩效研究

本文研究中国国有企业民营化是否有效的问题。我们通过对国企民营化进程的考察来对此问题作出经验解答。根据世界银行一份对中国五个城市、覆盖六个行业的近300家国有企业(SOEs)1996—2001年间的调查数据,我们发现:(1)绩效较好的国有企业优先被民营化;(2)总体上来说,中国的民营化是富有成效的,尤其是提高了销售收入,降低了企业的成本,并最终导致企业盈利能力和生产率的大幅提高;而且在获得这些收益的同时并没有带来大规模的失业问题;(3)由民营机构控股、彻底民营化的企业比那些仍然是国有控股、部分民营化的企业绩效表现更好。     

企业改制模式和改制绩效——基于企业数据调查的经验分析

本文以上世纪90年代后半期的企业调查数据为基础,通过建立经济计量模型来研究公有企业的改制绩效,通过相应的技术处理消除企业的各种先天因素或改制前固有的优势,试图测试改制是否能够确实激发出显著的效率效应。分析发现,向私有产权方向改制的企业效率得到显著提高;不同的改制模式是改制绩效的重要决定因素,经营者持大股从效率上来讲是最优的改制方式,而平均分配的股份合作制的改制方式则具有较差的业绩效果。我们还讨论了其原因,以及为什么中国现阶段特定制度环境下最优的公司治理结构是大股东控股。我们认为给定当前制度背景下,最佳的改革方案之一是股权向经营者集中,股权合理定价。因为只有市场的初次分配是有效率的,才能得到收入再分配的源泉。在此基础上,国家可通过各种税收设计,进行较为公平合理的收入再分配。     

Presence of foreign investors in privatized firms and privatization policy

This paper investigates how the presence of foreign investors in privatized firms affects privatization policy in a mixed oligopoly. We find that an increase in the stockholding ratio of foreign investors in a privatized firm increases the optimal degree of privatization, whereas an increase in the penetration of foreign firms in product markets reduces it. These results imply that the degree of openness of financial markets and that of product markets have contrasting implications for the optimal privatization policy.     

Mixed ownership in a mixed duopoly with differentiated products

We determine optimal privatization in a symmetric differentiated duopoly when the public firms do not bear the full cost of production and hence their objective functions differ from the government’s objective function. In the social optimum firms will generally have mixed ownership, and it will depend on the type of uncovered cost, the degree of substitutability of the two products and the output decision rule of the partially public firms. Different types of mixed duopoly emerge, ranging from both firms being partially privatized, to one being fully privatized. We also derive an optimal tax-subsidy scheme as a substitute for privatization.      

EFFECT OF PRIVATIZATION AND BROADER REFORMS ON LABOUR USE ADJUSTMENTS AND EFFICIENCY

State‐owned firms were said to have an excessive use of labour. The cost of job losses after privatization was debated but ignored due to perceived efficiency gains in the utilization of labour. We estimate longer time employment risk, labour use adjustment and the efficiency of labour utilization in the Pakistani cement industry. We conclude that firms have made significant adjustments in labour use and employment risks have indeed reduced. Our estimates however, show that long run labour use efficiency in the industry and in the privatized firms has not improved, but that, surprisingly, firms set‐up and operated privately have experienced a decrease in labour efficiency.     

Privatization and Development

Many of the problems of privatization in developing countries result from the lack of information about the situation of the economy and from the lack of determination on their path of privatization. This paper addresses the lack of information by presenting a theory of incomplete privatization contracts. It then turns to the lack of determination, dealing with particular problems of partially privatized firms and, finally, postulating an elaborate system of price regulation of privatized monopolies, which typically is missing in developing countries.     

POLITICAL SELECTION OF FIRMS INTO PRIVATIZATION PROGRAMS. EVIDENCE FROM ROMANIAN COMPREHENSIVE DATA

Exploiting a unique institutional feature of early Romanian privatization, when a group of firms was explicitly barred from privatization and another was partially privatized by management–employee buyouts, we test how politicians select firms into privatization programs. Using comprehensive firm data, we estimate the relation between preprivatization firm characteristics – the information known to politicians at the time of decision‐making – and the effect of privatization on employment, efficiency, and wages. With the estimated coefficients we simulate the effect of privatization on non‐privatizable and privatizable firms. We find that politicians expected privatization to increase employment in the privatizable group by 7%–10%, while to decrease it in the non‐privatizable group by 10%–30%, depending on the first‐stage estimation method, ordinary least squares with or without matching. We do not find such discrepancies in the expected change in firm efficiency; the simulated efficiency effect of privatization is large and positive for both groups of firms, and it is 52%–65% for non‐privatizable and 41%–43% for privatizable firms. The analysis does not support the hypothesis that wages played an important role in privatization decisions. Our study suggests that employment concerns played the key role in selecting firms for privatization, even if efficiency gains had to be sacrificed.     

Privatization and contaminated site remediation in Central and Eastern Europe: Do environmental liability policies matter?

This paper examines the effects on site remediation decisions after state-owned firms have been privatized of providing environmental information to potential investors and undertaking site remediation planning prior to privatization. The literature suggests that to minimize distortions created by uncertain environmental problems, governments should invest in environmental information for potential investors, inventory problems and develop plans for remediation. One of the believed benefits is a higher probability of site remediation, because with uncertainty resolved potential conflicts after privatization are less likely. Few countries in Central Europe, which has experienced both environmental problems and privatization on enormous scales, have adopted this advice. Using firm-level data, empirical analysis is presented, which suggests providing only information to investors is insufficient to spur remediation. Inventorying site contamination and planning remediation prior to privatization is a much more effective measure. Combining provision of information with remediation planning is found to be the most powerful policy package for encouraging remediation.     

Uncovering asset stripping during China's privatization

This paper empirically studies the occurrence and extent of asset stripping via undervaluing public assets during the mass privatization of state-owned and collectively owned enterprises in China. Using three waves of a national survey of private firms, we provide evidence that state-owned and collectively owned assets were substantially underpriced, indicating the presence of corruption during privatization. Further analysis shows that the extent of underpricing is more severe in regions with less market competition or weaker property rights protection, and more pronounced for intangible assets such as intellectual property rights and land use rights. When comparing firm efficiency between privatized firms and de novo private firms, we find that the former group continues to enjoy considerable preferential treatments, yet significantly underperforms the latter, possibly due to continued government control and intervention. Finally, we provide evidence that insider privatization is an important source of corruption during the privatization process.     

The influence of owners on voucher provatized firms in the Czech Republic

This paper analyses evidence gathered via a survey of former state enterprises in the Czech Republic to investigate how far these now privatized firms have been subject to the influence and control of their new owners, principally investment privatization funds. The paper summarizes the survey evidence and sets out its findings under two broad headings: First, the extent and nature of the way these funds have sought to exercies control over the firms they own; and second, the various facets of a firm's operations that have, or have not, been altered by the change of owner. The paper discusses the reasons behing the findings, arguing particularly that Czech voucher privatization, although in itself complete, should be seen and judged as the real privatization and not the finish.     

Privatization and Management Incentives: Evidence from the United Kingdom

This article examines whether privatization affects managementincentives and provides an estimate of the magnitude of thechange. Using data from large firms in the United Kingdom, wefind no relationship between compensation and financial performancein state-owned firms, both before and after corporate governancereforms. In contrast, we find a strong sensitivity in privatizedfirms both immediately and in more mature privatized firms drivenlargely by stock options and shareholding. For more mature privatizedfirms, compensation and dismissal sensitivities are complementarywith our estimates, suggesting a £443,000 increase inmanagement returns for a one standard deviation improvementin firm performance. This estimated incentive intensity is higherthan in established publicly traded firms. Our results supportthe theoretical focus on incentives in the dominant theoriesof state and private ownership.     

Using propensity matching estimators to evaluate the impact of privatization on wages

Whether the transfer of ownership rights to the private sector leads to a decline or increase in wage growth is theoretically ambiguous, given that the outcome depends on the uncertain interaction between firms and workers. Using propensity matching techniques, this article investigates the effects of privatization on wages in the Portuguese banking industry. The empirical results, obtained from Quadros de Pessoal for the period between 1989 and 1997, generally show a negative (positive) short-run (long-run) effect of privatization on relative wage growth for both men and women retained in the privatized firms. Moreover, the results show that the most educated and experienced (oldest) workers, as well as those in the high skill occupational categories, were more likely to experience a negative wage effect.     

The challenge of the commons: Estonian housing privatization

Housing privatization directly affects each individual and raises significant questions beyond those raised in business privatization. When businesses are privatized, the responsibilities are transferred with the ownership. Housing privatization transfers the ownership of and responsibility for the benefits and costs for the internal space of a flat. However, ownership of and responsibility for the common areas and systems in the large buildings-hallways, roofs, heating, lighting, or exterior walls-are not transferred. These buildings provide a classic scenario for the tragedy of the commons. Who gets the benefits and who pays the costs? How is the externality internalized and responsibility transferred? This paper evaluates the housing privatization process in Estonia with emphasis on the problems of maintenance and the formation of dwelling owners associations. Recommendations for resolution of the tragedy of the commons are provided.     

Post-privatization corporate governance and firm performance: The role of private ownership concentration,identity and board composition

We examine and analyze the post-privatization corporate governance of a sample of 52 newly privatized Egyptian firms over a period of 10 years, from 1995 to 2005. We look at the ownership structure that results from privatization and its evolution; the determinants of private ownership concentration; and the impact of private ownership concentration, identity and board composition on firm performance. We find that the state gives up control over time to the private sector, but still controls, on average, more than 35% of these firms. We also document a trend in private ownership concentration over time, mostly to the benefit of foreign investors. Firm size, sales growth, industry affiliation, and timing and method of privatization seem to play a key role in determining private ownership concentration. Ownership concentration and ownership identity, in particular foreign investors, prove to have a positive impact on firm performance, while employee ownership concentration has a negative one. The higher proportion of outside directors and the change in the board composition following privatization have a positive effect on firm performance. These results could have some important policy implications where private ownership by foreign investors seems to add more value to firms, while selling state-owned enterprises (SOEs) to employees is not recommended. Also, the state is highly advised to relinquish control and allow for changes in the board of directors following privatization as changing ownership, per se, might not have a positive impact on firm performance unless it is coupled with a new management style.     

The choice of ownership structure: Evidence from Russian mass privatization

We use a large data set of Russian manufacturing firms to describe the ownership structure in the Russian industry at the end of the mass privatization program in 1994 and its subsequent evolution. The data shows a high, but gradually decreasing ownership stakes of firm insiders (managers and workers). We estimate the effect of a wide range of firm characteristics on the decision to privatize, the initial ownership structure after privatization, and on subsequent changes of ownership stakes. We test and find support for several predictions of the model by Aghion and Blanchard (1998). For example, collusion among workers makes them more reluctant to sell shares to outsiders. Firms in financial distress show a higher incidence of insiders selecting the option of privatization leading to high insider ownership. This can be explained by their desire to insure against unemployment in the case of restructuring by outsiders. No evidence is found of a sequencing in privatization according to the performance of firms before privatization. A methodological novelty of this paper is the application of a tobit model with sample selection to the choice of ownership stakes.     

The determinants of privatization prices: evidence from Turkey

This paper analyses the determinants of privatization prices in a multi-industry study using a sample of 68 recently privatized firms from Turkey. Results show that revenue and market characteristics are significant determinants of privatization prices while current cost and profit indicators are not. It is argued that potential buyers regard these state firms as inefficient, therefore do not take into consideration their current costs and profits in determining their value. When the dependent variable is altered by dividing the firm's privatization price by the firm's sales (revenues), it is found that sales-adjusted privatization prices are responsive to firms profit margins. However, this result does not hold when the sample is restricted to a single industry. Profit margins along with other profitability and firm efficiency measures are no longer significant determinants of sales-adjusted privatization prices in the cement industry analysis. Unexploited production opportunities measured by capacity utilization ratios, and complete private ownership resume a more important role.     

PRIVATIZATION IN CHINA: TECHNOLOGY AND GENDER IN THE MANUFACTURING SECTOR

This paper examines the impact of privatization on gender discrimination in China across firms with different technology intensities. Using a comprehensive firm‐level survey, the paper identifies gender wage‐productivity differentials by directly estimating the relative productivity levels of workers from the production function of firms. The panel structure of the survey is taken advantage of by following firms that were fully state‐owned in the initial year, and distinguishing them from firms that were later privatized. The main results show that privatization was associated with an increase in relative productivity of female workers in high technology industries, and a reduction in relative productivity of female workers in low technology industries. Time varying coefficient results suggest that the improvements in gender outcomes in high technology industries may not be maintained in the long run as the relative wage and productivity ratios tend to deteriorate, potentially due to low supply of highly educated female workers. At the same time, outcomes in privatized low technology industries increase over time, lowering the wage and productivity gaps between male and female workers. (JEL J16, J31, P20)