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Policy Analysis

May 14, 2019 | Number 867

Making Sense of the Minimum Wage


A Roadmap for Navigating Recent Research
By Jeffrey Clemens

T
EX EC U T I V E S UMMARY

he new conventional wisdom holds that advocates’ claims is far more limited than they seem to
a large increase in the minimum wage realize. Advocates offer rationales for why current wage
would be desirable policy. Advocates for rates might be suppressed relative to their competitive
this policy dismiss the traditional concern market values. These arguments are reasonable to a point,
that such an increase would lower employ- but they are a weak basis for making claims about the ef-
ment for many of the low-skilled workers that the increase fects of large minimum wage increases.
is intended to help. Recent economic research, they claim, Third, economists’ empirical methods have blind
demonstrates that the disemployment effects of increasing spots. Notably, firms’ responses to minimum wage
minimum wages are small or nonexistent, while there are changes can occur in nuanced ways. I discuss why
large social benefits to raising the wage floor. economists’ methods will predictably fail to capture
This policy analysis discusses four ways in which the firms’ responses in their totality.
case for large minimum wage increases is either mistaken Finally, the details of employees’ schedules, perks,
or overstated. fringe benefits, and the organization of the workplace
First, the new conventional wisdom misreads the are central to firms’ management of both their costs
totality of recent evidence for the negative effects of and productivity. Yet data on many aspects of workers’
minimum wages. Several strands of research arrive regu- relationships with their employers are incomplete, if not
larly at the conclusion that high minimum wages reduce entirely lacking. Consequently, empirical evidence will
opportunities for disadvantaged individuals. tend to understate the minimum wage’s negative effects
Second, the theoretical basis for minimum wage and overstate its benefits.

Jeffrey Clemens is an associate professor of economics at the University of California, San Diego. His research focuses on health economics, public
finance, and the economics of the minimum wage.
2


INTRODUCTION more recent wave of research has coincided
Though For decades, debates over the minimum with a broader shift among academic econo-
proponents wage have been tense among advocates, mists. In 2013, nearly half the respondents to
policy­makers, and professional researchers a survey by the University of Chicago agreed
of a higher alike. While professional economists were that a $9 federal minimum wage would be
wage can cite once broadly skeptical of the benefits of a min- “desirable policy.”7 In 2015, only 26 percent
many papers imum wage, that consensus has eroded. of economists in a subsequent University of
to support Shifts in the views of media, advocates, Chicago survey worried that a $15 minimum
policymakers, and researchers each have their wage would significantly reduce employment
their view, own story. A striking example comes from the for low-wage workers.8
their reading New York Times. In 1987, the Times editorial- Proponents of high minimum wages ar-
of recent ized that “The Right Minimum Wage” is $0.1 gue that their position is supported by the
But in 2015, it opined that “fifteen dollars, best evidence, giving them the scientific high
research is


phased in gradually . . . would be adequate and ground. But does the research really justify
incomplete. feasible.”2 Even more recently, it claimed that this confidence and the accompanying shift
in the conventional wisdom? Though pro-
a living wage is an antidepressant. It is a ponents of a higher wage can cite many pa-
sleep aid. A diet. A stress reliever. It is a pers to support their view, their reading of
contraceptive, preventing teenage preg- recent research is incomplete. The research
nancy. It prevents premature death. It these proponents ignore has many strengths,
shields children from neglect.3 including trans­ parent research methods,
analyses of high-quality data, and a truly ran-
In the eyes of the Times, the minimum wage domized experiment. In contrast to the re-
has taken a 30-year journey from zero to hero. search emphasized by advocates, the broader
There is no ill, it seems, that a higher minimum body of work regularly finds that increases in
wage cannot alleviate, if not outright cure. minimum wages cause job losses for individu-
Following decades of moderate minimum als with low skill levels.
wage changes, select cities and states have re- Another problem with advocates’ calls
cently passed substantial increases. In Seattle, for a much higher minimum wage is that the
San Francisco, and New York City, the mini- theoretical basis for their claims is far more
mum wage has already reached the milestone of limited than they seem to realize. Advocates
$15. Recent laws passed by California, Illinois, offer rationales for why wage rates might be
Maryland, Massachusetts, New Jersey, and suppressed relative to competitive market
New York call for statewide increases to $15 values. These arguments are reasonable to a
in the coming years. Early in February of 2019, point, but they are a weak basis for making
the U.S. House Committee on Education and claims about the effects of large minimum
Labor held a hearing to advance the agenda to wage increases.
take a $15 wage floor nationwide.4 Third, economists’ empirical methods have
An erosion of the consensus among aca- blind spots. Notably, firms’ responses to mini-
demic economists predates this lurch in pub- mum wage changes can occur with nuanced
lic policy. Cracks in this consensus emerged dynamics. I discuss why economists’ methods
in earnest when David Card and Alan will predictably fail to capture such dynamics
Krueger wrote their book Myth and Measure- in their totality.
ment: The New Economics of the Minimum Wage Finally, the details of employees’ schedules,
in the 1990s.5 Even so, a 2005 survey found perks, fringe benefits, and the organization of
that only 17 percent of economists favored the workplace are central to firms’ management
increasing the federal minimum wage from of both their costs and productivity. Yet data
the then floor of $5.15 per hour to $6.15.6 A on many dimensions of workers’ relationships
3


with their employers are incomplete, if not piece of congressional testimony, Reich used
entirely lacking. Consequently, empirical evi- this research to argue that minimum wage A great deal
dence tends to understate the minimum wage’s increases up to $15 have “no negative employ- of recent
negative effects and overstate its benefits. ment effects.”15
In addition to influencing policy discus-
research finds
sions, the papers previously referenced have that minimum
WHAT CAN WE CONCLUDE been influential within the professional re- wage increases
FROM RECENT RESEARCH? search community. Importantly, these studies
cause job
Media coverage of minimum wage changes are not extreme outliers. A 2016 analysis by
provides a window into the minimum wage re- Paul Wolfson and Dale Belman found that the losses among
search landscape. Changes in states’ minimum estimated effects of minimum wage increases low-skilled
wage rates bring news stories on the wage gains on employment have been, on average, quite population


workers will receive and the number of work- small in recent studies.16
ers who are ostensibly poised to receive them. At the same time, a great deal of recent
groups.
As reported on December 27, 2018, in a head- research finds that minimum wage increases
line from USA Today, “From California to New cause job losses among low-skilled popula-
York, States Are Raising Minimum Wages in tion groups. In the remainder of this section,
2019 for 17 Million Workers.”9 The article does I discuss four strands of research that fit this
not consider that some of those workers may description. In the first, a number of papers
lose employment under the higher wage. It use the same data to study the same minimum
does not mention how employers might offset wage changes as the papers referenced previ-
the minimum wage’s effects on their costs or ously, but arrive at different conclusions. The
how such changes might affect workers’ lives. second strand of research analyzes more com-
Where do the authors of such articles turn pactly defined episodes of minimum wage in-
for their facts? The USA Today article draws on creases within the recent experience of U.S.
calculations by the National Employment Law cities and states. A third strand analyzes mini-
Project (NELP). Similar articles from CBS, mum wage changes using high-quality admin-
NPR, and other news outlets draw on calcu- istrative data from Europe. Finally, I discuss a
lations from the Economic Policy Institute paper that analyzes a truly randomized experi-
(EPI).10 In turn, these organizations cite aca- ment involving the imposition of minimum
demic research to support their views. wages in an online labor market.
Minimum wage analyses from NELP
and EPI draw on research papers that have Research on the Long History of
challenged the traditional view that mini- U.S. Minimum Wage Changes
mum wage increases reduce employment. The research most often discussed by U.S.
Key research in this vein includes a 2010 pa- media analyzes over three decades of U.S.
per by Arindrajit Dube, T. William Lester, state and federal minimum wage changes. In
and Michael Reich;11 a 2011 paper by Sylvia what follows, I focus on the substantive is-
Allegretto, Dube, and Reich;12 a 2017 paper by sues at stake in the debate within this strand
Allegretto, Dube, Reich, and Ben Zipperer;13 of research. Readers interested in references
and a 2019 paper by Doruk Cengiz, Dube, to key entries in this debate can find a road-
Attila Lindner, and Zipperer.14 Each of those map in the endnotes.17
papers analyzes a large set of minimum wage Researchers estimate the effects of mini-
changes enacted by U.S. states or the federal mum wage changes by making comparisons
government that spans several decades. In ev- between states that increased their minimum
ery case, the authors conclude that there is no wages and states that did not. The goal is to
evidence to support the view that minimum infer whether an increase in minimum wages
wage increases cause job losses. In a recent led to the number of jobs changing differently
4


than it otherwise would have. The key ques- biases. If anything, states appear to enact min-
The debate tion for evaluating the quality of these analy- imum wage increases when their labor mar-
is difficult ses is whether the states being compared are kets are expanding more rapidly than the labor
“good counterfactuals.” That is, do the states markets in other states. This will tend to bias
to evaluate being compared reliably allow us to infer how analyses toward finding that minimum wage
because key employment would have changed if states had increases have a positive effect on employ-
differences not increased their minimum wages? Debates ment, which is the opposite of what Neumark
between between researchers are in large part debates and Wascher’s critics allege.
As Neumark observes in a 2018 review
over which approaches to selecting com-
competing parisons generate “good counterfactuals” and of recent research, papers using a variety of
studies are hence “unbiased estimates.” best-practice methodologies have concluded


opaque. In their 2008 book Minimum Wages, David that minimum wage increases reduce em-
Neumark and William Wascher summarized ployment.19 Indeed, several recent papers
existing research as being broadly support- use methods that are designed to account
ive of the view that minimum wages ad- for precisely the kind of unobserved forces
versely affect low-skilled workers.18 Card and that Dube, Lester, and Reich claim bias tradi-
Krueger’s work notwithstanding, Neumark tional minimum wage research. Two examples
and Wascher argued that the weight of the ev- that analyze roughly the same history of U.S.
idence implied that minimum wage increases minimum wage changes include a 2017 paper
reduce employment. In their own empirical by David Powell and a 2012 paper by Yusuf
research, Neumark and Wascher have relied Baskaya and Yona Rubinstein.20 Both papers
on the broadest possible set of comparisons estimate substantial negative effects of mini-
between states that increased minimum wag- mum wage increases on teen employment,
es and states that did not. In contrast, papers echoing the traditional research finding.
finding that minimum wage changes have no In summary, the segment of the minimum
effect on employment typically rely on sub- wage literature that simultaneously analyzes
sets of the available comparisons. Because three decades of minimum wage changes re-
their comparisons are less selected, Neumark mains contentious. Relative to Neumark and
and Wascher’s analyses are less prone to Wascher’s early estimation frameworks, some
charges of data mining. This makes their ap- methodologies for accounting for nuanced bi-
proach the natural default unless there is a ases yield smaller estimates, while others yield
compelling case that their method would re- larger estimates. Because direct evidence in
sult in systematically biased estimates. Crit- favor of one approach and against others is in
ics of their research argue that such biases short supply, strong conclusions based on this
do exist and are so severe that Neumark and strand of research alone are unwarranted.
Wascher’s estimates are not “credible.”
The claim that a scholarly work lacks cred- Research on Recent U.S.
ibility is a strong one, but does the strength of Minimum Wage Changes
the evidence match the strength of the claim? The debate described above is difficult
The answer is no, because there is remarkably to evaluate because key differences between
little fire behind the smoke. To date, direct competing studies are opaque. The studies in
evidence for the strengths and weaknesses of question attempt to analyze hundreds of dis-
alternative research methods is in surprisingly tinct events simultaneously. An advantage of
short supply. In their own terminology, the this approach is that it may provide evidence
biases alleged by Dube, Lester, and Reich are for the average effect of minimum wage in-
“unobserved.” That is, their argument is not creases across a broad range of settings. But
built on evidence of specific economic forces when estimates are in dispute, a drawback of
that, in their telling, give rise to systematic such an analysis is that it becomes difficult to
5


determine why competing studies of the same our paper, but he contested our interpretation
events arrive at different conclusions. and conclusions.22 Wither and I responded to The
A number of recent studies take an alterna- Zipperer’s critiques with a series of additional University of
tive approach: they analyze compact historical analyses.23 We leave interested readers to di-
episodes in isolation. The key benefit of this gest the details of this debate by reading the
Washington
approach is that differences between studies studies themselves. research
can be transparently debated with reference A number of papers have analyzed state team found
to the events surrounding a single historical and local minimum wage changes enacted in
evidence that
episode. Transparency of this sort is crucial for recent years. In a widely discussed study by re-
evaluating competing studies. For this reason, searchers at the University of Washington, ad- hours worked
the approach of focusing on compact histori- ministrative records from Washington State’s by low-wage
cal episodes is standard practice in other areas unemployment insurance system were used to employees
of economic research, including analyses of analyze the effects of a recent series of increas-
major health and tax policy reforms. es in Seattle’s minimum wage.24 The research
declined
My own work on the minimum wage has team found evidence that hours worked by substantially
separately considered two distinct historical low-wage employees declined substantially in in the wake
episodes. In a recently published work, Michael the wake of the series of increases. Indeed, the
of the series
Wither and I estimate the effects of the federal decrease for all these workers together was
minimum wage changes enacted during the so large that their overall earnings declined of minimum
Great Recession.21 The 2007–2009 federal in- slightly. Subsequent work by the Seattle team wage


creases had greater effects in some states than found evidence that employment fell only a lit- increases.
others, depending on the initial level of a state’s tle, if at all, for workers with prior experience
minimum wage. We use data that follow indi- in low-wage jobs.25 This suggests that employ-
viduals over time, which allows us to separate ment declined primarily because of reductions
minimum wage workers from workers with in hiring rather than increases in firing.
moderately higher skills. We find that employ- At this point, readers may be unsurprised to
ment among minimum wage workers declined learn that the conclusions of the Seattle mini-
far more in states that were “fully bound” by the mum wage study are in dispute. Most notably,
federal minimum wage changes than in states the study’s initial findings were contested in a
that were not. Notably, employment among memo from Reich to the office of Seattle may-
moderately higher-skilled individuals does not or Ed Murray.26 This memo was complement-
exhibit this pattern; changes in the employ- ed by critical analyses by Zipperer and John
ment of these workers were comparable be- Schmitt, which were disseminated through
tween the two groups of states. This bolsters the EPI.27 In revisions to their analyses, the
the case that our analysis is not biased by differ- Seattle team has responded to several of the
ences in the severity of states’ underlying reces- initial criticisms leveled against their work. Al-
sions. Indeed, housing market indicators reveal though they have only modestly revised their
that our estimates are more likely to be biased original conclusions, it is unclear what econo-
toward finding positive effects of minimum mists’ final verdict on this episode will be.
wage increases than negative effects. We esti- Many U.S. states have enacted substan-
mate that the federal minimum wage increases tial minimum wage changes in recent years.
enacted during the Great Recession reduced The early phases of these changes have been
employment among low-skilled individuals by analyzed in a 2017 paper by Radha Gopalan,
hundreds of thousands of jobs. Barton Hamilton, Ankit Kalda, and David
Like other minimum wage research that Sovich.28 These authors analyze administra-
has drawn public attention, our work has its tive employment records from Equifax, which
detractors. Zipperer replicated the findings allow them to track roughly one million hourly
Wither and I reported in an earlier version of wage workers. Using data from 2011 through
6


2015, they find that establishments that em- Denmark, Greece, Hungary, the Netherlands,
The largest ploy low-wage workers reduced employment Sweden, and Germany. While estimates vary
of states’ following minimum wage increases. This oc- substantially among these analyses, each case
curred through reductions in hiring rather provides evidence that firms respond in tradi-
minimum than layoffs of existing low-wage workers, tional ways to increases in labor costs.
wage increases which is consistent with the findings of the Claus Kreiner, Daniel Reck, and Peer Skov
are negatively Seattle minimum wage study. use Danish administrative data from 2012 to
associated In additional research, Michael Strain and 2015 to analyze the employment effects of an
I are analyzing recent minimum wage changes age-specific increase in the minimum wage.30
with using precommitted research designs.29 That They find that the higher wage floor appli-
employment is, to avoid the pitfalls of data mining, we are cable to 18-year-olds substantially reduces
among those reporting the results of analyses to which we their employment compared to 17-year-olds,
committed after analyzing data that extended for whom the wage floor is much lower. The
in low-skilled


through 2015. Thus far, our estimates sug- employment drop is large enough to ensure
groups. gest that the effects of recent minimum wage that the total earnings of 18-year-olds are no
changes have been highly varied. The largest of greater than the total earnings of 17-year-olds,
states’ minimum wage increases are negatively despite their higher wage floor.
associated with employment among those in Constantine Yannelis uses administrative
low-skilled groups. Further, the employment employment records to analyze reductions in
declines associated with large minimum wage Greece’s minimum wage rates.31 The minimum
changes have grown in magnitude as we have wage changes he analyzes were implement-
incorporated data from 2016, 2017, and 2018 ed in 2012 in accordance with International
into our analyses. In contrast, small changes Monetary Fund bailout terms. These wage
have had modest and possibly positive rela- reductions were disproportionately large
tionships with employment. for young workers relative to older workers.
Recent evidence points to important Yannelis finds that these changes led firms to
roles for subtle yet conventional labor mar- significantly increase their employment of
ket forces. That is, the evidence suggests that young workers relative to older workers.
the dynamics of labor demand are crucial for Peter Harasztosi and Attila Lindner analyze
understanding the minimum wage’s effects. a large national minimum wage increase enact-
During the Great Recession, for example, a ed by Hungary.32 They use firms’ administrative
combination of low demand and substantial tax filings to classify the extent to which each
churn may have set the stage for the rela- firm was affected and to track changes in firms’
tively sharp effects of the 2007–2009 federal employment over time. Harasztosi and Lindner
minimum wage increases on employment. In conclude that roughly 1 in 10 workers affected
contrast, it may be the case that only large min- by Hungary’s dramatic minimum wage increase
imum wage changes have large enough effects lost employment. Because the wage increase
on firms’ costs to alter their hiring during an was quite large, the wage bills of strongly affect-
economic expansion. When labor markets are ed firms increased substantially. In this setting,
tight, firms may effectively ignore small mini- the authors find that the bulk of the minimum
mum wage increases, enabling such increases wage increase’s costs were borne by consumers
to have their intended effects on wages. through increases in prices.
Jan Kabatek looks at the Netherlands.33
Research from European Contexts Like Denmark, this is a case of minimum
A number of recent papers have analyzed wage rates that rise significantly with age.
minimum wage changes using high-quality Using data that track individuals over time,
administrative data from European countries. Kabatek concludes that workers become sub-
Recent country-specific analyses examine stantially more likely to lose their jobs in the
7


two months prior to birthdays on which their differences in firms’ minimum wage require-
minimum wage rises. He finds that these in- ments through random assignment. He finds In Horton’s
dividuals gradually return to employment that firms make significant shifts in the work- randomized
over subsequent months. ers they employ when they are required to pay
Emmanuel Saez, Benjamin Schoefer, and higher wages. In other words, they shift away
experiment,
David Seim analyze Swedish payroll tax reduc- from workers who are the least skilled and high
tions implemented between 2007 and 2009.34 toward workers who demonstrate higher pro- minimum
These tax changes were meant to reduce the ductivity on past jobs. High minimum wage
wage rates
cost of young workers to firms. From the per- rates thus reduce the employment opportuni-
spective of firms, the tax changes were eco- ties of workers who are less productive. reduce the
nomically similar to a reduction in negotiated employment
wage rates. Using Swedish administrative re- opportunities
cords, which are renowned for their high qual- DOES THE EVIDENCE
ity, the authors found that these tax changes JUSTIFY THE SHIFT IN THE
of workers
TRADITIONAL CONSENSUS? who are less


led to substantial increases in the employment
of younger workers relative to older workers. Why has the consensus on minimum wages productive.
Finally, Marco Caliendo, Carsten Schröder, shifted? This is a difficult question, and any an-
and Linda Wittbrodt summarize research, swer is necessarily speculative. In this section
including their own work with Alexandra I discuss several issues that arguably are under-
Fedorets and Malte Preuss, on the 2015 in- appreciated by the new conventional wisdom.
troduction of Germany’s statutory minimum
wage.35 The German experience was novel Mistake 1: An Incomplete Reading
because it involved a shift from collectively of the Recent Research
bargained wages to a statutory minimum The new conventional wisdom has to an
wage floor, as opposed to an increase in an unwarranted degree focused on the debate
existing minimum wage. These authors con- over the long history of minimum wage chang-
clude that the introduction of the minimum es in the United States—that is, it has focused
wage caused a small reduction in the number on the research discussed at the beginning of
of low-wage jobs. Consistent with work on the previous section of this paper. It has fo-
recent U.S. minimum wage changes, employ- cused less on other lines of research. In par-
ment declines have come primarily through ticular, it has focused less on recent research
reductions in hiring rather than increases in from European contexts, including Denmark,
firing. Among those individuals with jobs, re- Germany, Greece, Hungary, the Netherlands,
ductions in hours were large enough to ensure and Sweden, as well as on research that trans-
that the monthly incomes of low-wage work- parently analyzes compact historical episodes
ers changed little. in the U.S. experience.
The emphasis of the new conventional
An Actual Experiment wisdom is unfortunate because other lines of
A final piece of research that deserves research have desirable features. In research
emphasis is a 2018 paper by John Horton.36 on the effects of taxes, unemployment ben-
He analyzes an online labor market in which efits, and other public policy initiatives, three
firms contract with workers for tasks includ- attributes of studies have, with good reason,
ing programming, data entry, and graphic de- emerged as attributes toward which research-
sign. In contrast with the papers discussed ers strive. The first is a preference for data from
thus far, Horton identified an opportunity to individual-level administrative records over
deploy a randomized controlled trial to study both aggregate data and survey data. The sec-
the effects of minimum wage increases. As ond is a preference for running experiments
the designer of the study, he could impose whenever possible. The third is an emphasis on
8


implementing transparent research methods. that wage does not exceed a given worker’s pro-
Both data The research that forms the basis of the ductivity. In discussions of such models, “mon-
and intuition new conventional wisdom tends to lack all opsony” and “frictions” are the jargon with
three of these attributes. Even when these which readers may be increasingly familiar.
suggest that studies’ methods appear transparent and in- The first chapter of Alan Manning’s influ-
employers tuitive, opaque choices tend to determine ential 2003 book Monopsony in Motion begins
wield only both the sets of events that are studied and with the following thought experiment: What
modest the comparisons underlying the estimates. happens if an employer cuts the wage they pay
their workers by one cent?37 Because a penny is
In contrast, the research with which many
market audiences are less familiar includes truly ran- very small, the answer to this question is noth-
power over domized experiments and makes regular use ing. From this thought experiment, Manning
low-skilled of transparent methods and individual-level concludes that “it is monopsony, not perfect


administrative records. competition, that is the best simple model to
workers. describe the decision problem facing an indi-
Mistake 2: Shortcomings in the vidual employer.”38 This shift in framing is of
Application of Economic Thinking great consequence. The textbook mono­psony
In addition to taking a narrow view of the model is one in which a modest minimum
recent literature, the shifting consensus on wage can actually increase employment among
the minimum wage has roots in several short­ low-skilled workers. It is a model in which the
comings in the application of basic economic minimum wage can be used to combat ineffi-
ideas to real-world markets. The first involves ciencies linked to employer market power.
discussions of labor market imperfections. But the transition from the one-penny
The second involves the fact that there is more thought experiment to a monopsony-centric
to a job than its wage. The third involves the view of the labor market merits scrutiny. A
time horizons over which firms can respond to model’s importance stems from the power of
changes in policy. its broad predictive and explanatory content,
CONCEPTIONS OF PERFECT COMPETITION VS. not from an illusory to-the-penny precision.
IMPERFECT COMPETITION. In economic theory, Whether a competitive or monopsony-centric
the minimum wage’s effects depend on how model is more useful depends on key details of
wages are set within labor markets. If a market both the labor market and the policy changes
is perfectly competitive, then pay aligns one is attempting to understand.
perfectly with a worker’s productivity. Under The practical implications of Manning’s
perfect competition, a binding minimum thought experiment hinge on the size of the
wage is by definition a wage that exceeds some frictions that give firms market power. Work-
workers’ productivity. In this framework, a ers do not leave their employers over pennies;
binding minimum wage will inevitably cause it costs more than pennies to find a new job.
some workers to be laid off by firms. It is the cost of finding a new job that deter-
Contrast that with models of markets mines the power held by a worker’s employer
with imperfect competition. The key feature to set wages.
of these models is that market wages are sup- Both data and intuition suggest that em-
pressed relative to their perfectly competitive ployers wield only modest market power over
levels—that is, workers are paid less than the low-skilled workers. One need only enter a
value of what they produce. Consequently, in mall, with its food court and retail outlets, to
these models it is possible for a minimum wage appreciate the large number of employers to
increase to improve workers’ earnings without which most low-wage workers can potentially
excluding them from employment. Firms are apply. Real-world data concur; the value of the
willing to pay a minimum wage that exceeds time it would take most minimum wage work-
what they would otherwise have paid as long as ers to find a competitive job offer is unlikely
9


to exceed $1,000–$2,000.39 For full-time increases in a worker’s effort are straight­
workers, these amounts are equivalent to forward ways for employers to align costs and Economists
$0.50–$1.00 in hourly pay. A wage differential revenues following minimum wage increases. have long
of $1 is thus far more likely to lead workers to Crucially, actions along these margins will
seek new jobs than the penny from Manning’s tend to offset any wage increase’s effects on
been aware
thought experiment. a worker’s well-being. Because these factors that a job’s
Real-world search costs appear to have quite are often unmeasured, our awareness of their nonwage
modest implications for the market power importance makes it appropriate to embrace
humility regarding the strength of the conclu-
characteristics
employers can exert over workers in low-wage
industries, such as food service and retail sales. sions we can draw from available data. can be central
The facts suggest that the monopsony frame- Economists have long been aware that a to its value to


work may be useful for analyzing modest mini- job’s nonwage characteristics can be central workers.
mum wage increases from modest initial levels. to its value to workers. In a 1986 chapter from
But for large minimum wage changes, a model the Handbook of Labor Economics, Sherwin
approaching the benchmark of perfect compe- Rosen observes that the framework of “com-
tition should be the more reliable guide. pensating wage differentials” has been with
FRINGE BENEFITS AND OTHER ATTRIBUTES the economics profession since Adam Smith’s
OF JOBS. Many analyses of the minimum wage The Wealth of Nations.40 There has recently
adopt a narrow view of relationships between been a wave of high-quality research on this
workers and employers. Specifically, they theme. Several recent papers highlight the
simplify the relationship to two factors: wages value of worker-driven schedules.41 One paper
and employment. In analyses of this sort, the by Nicole Maestas, Kathleen Mullen, David
minimum wage’s effect on a worker’s well-being Powell, and others finds that workers are will-
is deceptively simple. If the wage rises and the ing to pay substantially for improvements
worker remains employed, naïve models imply in workplace conditions.42 Complementary
that the worker is necessarily better off. research by Isaac Sorkin finds that nonwage
But in practice, when we negotiate with aspects of jobs account for a large fraction of
our employers, we appreciate that jobs have total variation in workers’ valuations of jobs
many subtle but important characteristics. among different firms.43
Work hours can be at the convenience of Despite the obvious importance of non-
the worker or at the convenience of the firm. wage factors, research on the extent to which
The pace of work can be fast or slow, safer or these factors are affected by minimum wage
riskier, and can require more or less mental increases is quite limited. Because of data limi-
energy. Compensation can either include or tations, the primary nonwage factor that can
exclude health insurance, retirement contri- be incorporated into minimum wage studies
butions, and other benefits. A job’s location is whether workers have employer-provided
can be more or less preferable, and opportu- health insurance (EPHI). Analyses of histori-
nities for advancement (within or outside the cal minimum wage changes tend to find weak
firm) can be more or less ample. evidence of a relationship between minimum
All these factors affect both workers’ well- wage increases and EPHI. In contrast, analy-
being and firms’ bottom lines. Most minimum ses of more recent minimum wage changes
wage commentary sweeps these factors under tend to find negative effects.44 On a qualita-
the rug, but nuanced models recognize that tively different but important margin, papers
they are central for understanding the mini- by Hyejin Ku and by Decio Coviello, Erika
mum wage’s effects. Adjustments to nonwage Deserranno, and Nicola Persico find that low-
factors are among the most obvious and in- productivity workers increase their work ef-
expensive adjustments a firm can make. Re- fort in the wake of minimum wage increases.45
ducing noncash compensation and requiring But little if any evidence exists on a rich set of
10


potentially important margins, including the Kahn, Jonathan Meer, and I similarly find that
Standard flexibility of work schedules. recent increases in states’ minimum wages
practice biases DYNAMICS. When estimating the effects of predict increases in the average age and edu-
minimum wage increases, economists struggle cation of workers in low-wage occupations.47
researchers to capture subtleties in the timing with which Minimum wage changes often come with
against firms might respond. An example involving the long lags between the dates when they are
detecting payment-processing technologies in which fast- legislated and the dates when they are imple-
negative food chains can invest illustrates several points. mented. In an analysis of recent legislative
Fast-food chains can choose either histories, Duncan Hobbs, Michael Strain, and
effects of employee-operated cash registers or auto­ I find that recent state-initiated minimum
minimum mated kiosks. An important aspect of this wage increases had lags averaging six months
wage increases choice is that it involves upfront investments between the date of their passage and the date
in equipment that may depreciate gradually a first increase was implemented.48 Lags be-
on employ­


over many years. For new firms, high mini- tween the date of legislation and the final date
ment. mum wages may tip the cost calculation in fa- of multistep increases are much longer.
vor of automated kiosks. New entrants to the Empirical methods in the minimum wage
fast-food market may thus adopt less labor- literature account poorly for lags between leg-
intensive business models soon after high min- islative activity and implementation. When an
imum wages go into effect. But for continuing increase is signed into law, forward-thinking
firms, the calculation may be quite different. firms know to take cost implications into ac-
This will be particularly true for those that count. Some firms may thus change their tech-
made investments in standard cash registers nologies before a minimum wage increase goes
prior to a minimum wage increase’s passage. If into effect. Firms’ forward-looking responses
the minimum wage rises modestly, such firms undermine the ways many economists deploy
may continue operating with cash registers statistical tests to estimate a minimum wage
until their equipment requires replacement. change’s effects. When estimating those ef-
Consequently, their response to a minimum fects, economists worry that their estimates
wage increase might not occur until years af- will be biased if the labor markets in states that
ter the change has gone into effect. This dif- enact minimum wage increases were trend-
ference between new entrants and continuing ing differently than the labor markets in other
firms highlights that a minimum wage change’s states. Unfortunately, these differential trends
overall effects may unfold gradually. cannot easily be distinguished from forward-
Economists have little evidence on how looking responses of firms. The standard prac-
firms adjust their capital investments in re- tice in recent research has been to lump these
sponse to changes in minimum wages. Efforts phenomena together—that is, forward-looking
to study firms’ production technologies have responses have been conflated with “divergent
to date been indirect. For example, recent pre-existing trends.” In turn, they are assumed
studies by Dan Aaronson and Brian Phelan to be evidence that estimates are likely to be bi-
and by Grace Lordon and David Neumark find ased. Standard practice thus biases researchers
that minimum wage increases predict declines against detecting negative effects of minimum
in employment among workers in occupations wage increases on employment.
whose tasks are readily replaced with technol- Although this bias remains pervasive in
ogy.46 Related analyses emphasize the produc- recent minimum wage research, its relevance
tivity of the workers within each occupation. has been recognized for quite some time.
In his randomized experiment in an online The implications of investments by forward-
labor market, John Horton finds evidence looking firms were developed in papers by
that firms shift from lower-productivity work- Sorkin and by Aaronson, Eric French, Sorkin,
ers toward higher-productivity workers. Lisa and Ted To.49 A key empirical aspect of these
11


insights was highlighted in work by Jonathan more limited than its supporters let on, and it
Meer and Jeremy West,50 who show that com- ignores significant blind spots in economists’ Because $15
mon techniques for accounting for “divergent empirical methods. wage floors
trends” may in fact bias analyses toward incor- Because $15 wage floors have been narrowly
rectly concluding that minimum wages have and only recently applied, there is no evidence
have been
no effect on employment. These authors show to support the sweeping claim that a $15 federal narrowly and
that in some cases this bias can be resolved minimum wage would benefit disadvantaged only recently
by analyzing employment growth rather than households at little cost. This is particularly
applied, there
employment levels. Although Cengiz, Dube, true when we consider regions where low hous-
Lindner, and Zipperer have recently criticized ing and labor costs support the social and labor is no evidence
the empirical analysis of Meer and West, the market integration of both immigrants and to support
theoretical thread connecting the analyses of low-skilled native-born workers. More than the sweeping
Meer and West to those of Aaronson, French, doubling the minimum wage, from $7.25 to
Sorkin, and To is unchallenged. The key con- $15.00, risks radically altering the entry-level
claim that a
ceptual point is strongly intuitive and appears opportunities on which these individuals rely. $15 federal
to be well founded. Recent minimum wage changes have been minimum
substantial, with scheduled increases ap-
proaching 70 percent of the initial minimum
wage would
CONCLUSION: WHERE DO wage in several states. Large differences in benefit
WE GO FROM HERE? states’ minimum wage policies have now been disadvantaged
The “Fight for $15” has shifted from the sustained for several years. Recent experience households at


advocacy fringes to the political mainstream. may thus provide the best opportunity in de-
News media increasingly report that a $15 fed- cades to learn about the medium-run effects
little cost.
eral minimum wage would benefit low-skilled of substantial minimum wage changes. As data
workers at little cost. This essay pushes against on recent labor market developments pour in,
that shift on several grounds: the new conven- the next several years will be an exciting time
tional wisdom’s reading of recent evidence for both minimum wage research and mini-
is incomplete, its grounding in theory is far mum wage researchers.
12

NOTES: 13. S. Allegretto et al., “Credible Research Designs for Mini-


1. Editorial Board, “The Right Minimum Wage: $0.00,” New mum Wage Studies: A Response to Neumark, Salas, and
York Times, January 14, 1987. Wascher,” Industrial & Labor Relations Review 70, no. 3 (2017):
559–92.
2. Editorial Board, “The Minimum Wage: Getting to $15,” New
York Times, September 4, 2015. 14. D. Cengiz et al., “The Effect of Minimum Wages on Low-
Wage Jobs,” Quarterly Journal of Economics. Forthcoming.
3. M. Desmond, “Dollars on the Margins,” New York Times Maga-
zine, March 8, 2019. 15. M. Reich, “Likely Effects of a $15 Federal Minimum Wage
by 2024,” Policy Report, Center on Wage and Employment
4. Committee on Education and Labor, “Full Committee Hear- Dynamics, Institute for Research on Labor and Employment
ing: ‘Gradually Raising the Minimum Wage to $15: Good for (Berkeley: University of California, February 7, 2019).
Workers, Good for Businesses, and Good for the Economy,’”
U.S. House of Representatives, February 7, 2019. 16. P. Wolfson and D. Belman, “Fifteen Years of Research on U.S.
Employment and the Minimum Wage,” Tuck School of Business
5. D. Card and A. B. Krueger, Myth and Measurement: The New Working Paper no. 2705499, December 20, 2015 (revised De-
Economics of the Minimum Wage (Princeton, NJ: Princeton Uni- cember 14, 2016).
versity Press, 1995).
17. Dube, Lester, and Reich challenged research by David
6. R. Whaples, “Do Economists Agree on Anything? Yes!,” Econ- Neumark and William Wascher. In their 2008 book Mini-
omists’ Voice, November 2006. mum Wages (Cambridge, MA: MIT Press, 2008), Neumark and
Wascher concluded that, Card and Krueger’s work notwith-
7. Initiative on Global Markets Economic Experts Panel, standing, the weight of the evidence continued to support the
“Minimum Wage,” Chicago Booth School of Business, Febru- traditional view that minimum wages reduce employment.
ary 26, 2013. Dube, Lester, and Reich advanced a case that Neumark and
Wascher’s estimates were prone to econometric biases. Alle-
8. Initiative on Global Markets Economic Experts Panel, “$15 gretto, Dube, and Reich (2011) further advanced this case. De-
Minimum Wage,” Chicago Booth School of Business, Septem- bate over econometric methods for analyzing three decades of
ber 22, 2015. U.S. minimum wage changes subsequently intensified. In two
papers from 2014, Neumark, Salas, and Wascher responded to
9. J. Herron, “From California to New York, States Are Raising the critiques of Neumark and Wascher’s earlier work; see D.
Minimum Wages in 2019 for 17 Million Workers,” USA Today, Neumark, J. M. Salas, and W. Wascher, “Revisiting the Mini-
December 27, 2018. mum Wage—Employment Debate: Throwing Out the Baby
with the Bathwater?,” Industrial & Labor Relations Review 67,
10. I. Ivanova, “Five Million U.S. Workers Will Get Raises in no. 3 (2014): 608–48; D. Neumark, J. M. Salas, and W. Wascher,
2019,” CBS News, December 31, 2018; and S. Raphelson, “Mini- “More on Recent Evidence on the Effects of Minimum Wages
mum Wages Rising in 20 States and Several Cities,” NPR, De- in the United States,” IZA Journal of Labor Policy 3, no. 1 (2014):
cember 30, 2018. 24. This work prompted a 2017 rejoinder from Allegretto,
Dube, Reich, and Zipperer, which was published alongside a
11. A. Dube, T. W. Lester, and M. Reich, “Minimum Wage response from Neumark and Wascher; see S. Allegretto et al.,
Effects across State Borders: Estimates Using Contiguous “Credible Research Designs for Minimum Wage Studies: A
Counties,” Review of Economics and Statistics 92, no. 4 (2010): Response to Neumark, Salas, and Wascher,” Industrial & La-
945–64. bor Relations Review 70, no. 3 (2017): 559–92; D. Neumark and
W. Wascher, “Reply to ‘Credible Research Designs for Mini-
12. S. Allegretto, A. Dube, and M. Reich, “Do Minimum Wages mum Wage Studies,’” Industrial & Labor Relations Review 70,
Really Reduce Teen Employment? Accounting for Heterogene- no. 3 (March 7, 2017): 593–609. Cengiz, Dube, Lindner, and
ity and Selectivity in State Panel Data,” Industrial Relations: A Zipperer further advance the claim that there is no evidence
Journal of Economy and Society 50, no. 2 (2011): 205–40. that three decades of U.S. minimum wage increases have at any
13

point reduced employment; see Cengiz et al., “The Effect of Research Working Paper no. 25182, October 2018.
Minimum Wages on Low-Wage Jobs.” Forthcoming.
26. Michael Reich letter to Seattle Mayor’s Office, Institute for
18. Neumark and Wascher, Minimum Wages. Research on Labor and Employment, June 26, 2017.

19. D. Neumark, “The Econometrics and Economics of the 27. B. Zipperer and J. Schmidt, “The ‘High Road’ Seattle Labor
Employment Effects of Minimum Wages: Getting from Market and the Effects of the Minimum Wage Increase,” Eco-
Known Unknowns to Known Knowns,” National Bureau of nomic Policy Institute, June 26, 2017.
Economic Research Working Paper no. 25043, September 17,
2018. 28. R. Gopalan et al., “State Minimum Wage Changes and Em-
ployment: Evidence from Two Million Hourly Wage Workers,”
20. D. Powell, “Synthetic Control Estimation beyond Case Stud- Social Science Research Network Electronic Journal, January
ies: Does the Minimum Wage Reduce Employment?,” working 2017.
paper, RAND Corporation, Labor & Population, Santa Monica,
CA, July 2017; and Y. S. Baskaya and Y. Rubinstein, “Using Feder- 29. An early paper in this research is J. Clemens and M. R.
al Minimum Wages to Identify the Impact of Minimum Wages Strain, “The Short-Run Employment Effects of Recent Mini-
on Employment and Earnings across the U.S. States,” working mum Wage Changes: Evidence from the American Community
paper, Department of Economics Workshop, University of Chi- Survey,” Contemporary Economic Policy 36, no. 4, (October 2018):
cago, 2012, unpublished, PDF file. 711–22. The initial precommitment concept can be found in J.
Clemens and M. R. Strain, “Estimating the Employment Effects
21. J. Clemens and M. Wither, “The Minimum Wage and the of Recent Minimum Wage Changes: Early Evidence, an Inter-
Great Recession: Evidence of Effects on the Employment and pretative Framework, and a Precommitment to Future Analy-
Income Trajectories of Low-Skilled Workers,” Journal of Public sis,” National Bureau of Economic Research Working Paper no.
Economics 170 (February 2019): 53–67. 23084, January 2017.

22. B. Zipperer, “Did the Minimum Wage or the Great Reces- 30. C. T. Kreiner, D. Reck, and P. E. Skov, “Do Lower Minimum
sion Reduce Low-Wage Employment? Comments on Clemens Wages for Young Workers Raise Their Employment? Evidence
and Wither (2016),” working paper, Washington Center for Eq- from a Danish Discontinuity,” Review of Economics and Statistics,
uitable Growth, December 2016. forthcoming, https://doi.org/10.1162/rest_a_00825.

23. See J. Clemens, “The Minimum Wage and the Great Reces- 31. C. Yannelis, “The Minimum Wage and Employment Dy-
sion: A Response to Zipperer and Recapitulation of the Evi- namics: Evidence from an Age-Based Reform in Greece,”
dence,” ESSPRI Working Papers Series no. 20171, June 14, 2017; working paper, Royal Economic Society Annual Conference,
J. Clemens, “Pitfalls in the Development of Falsification Tests: April 2014.
An Illustration from the Recent Minimum Wage Literature,”
ESSPRI Working Papers Series no. 20172, June 14, 2017; and J. 32. P. Harasztosi and A. Lindner, “Who Pays for the Minimum
Clemens and M. Wither, “Additional Evidence and Replication Wage?,” American Economic Review. Forthcoming.
Code for Analyzing the Effects of Minimum Wage Increases
Enacted during the Great Recession,” ESSPRI Working Papers 33. J. Kabátek, “Happy Birthday, You’re Fired: The Effects
Series no. 20173, June 14, 2017. of Age-Dependent Minimum Wage on Youth Employment
Flows in the Netherlands,” IZA Discussion Paper no. 9528,
24. E. Jardim et al., “Minimum Wage Increases, Wages, and November 2015.
Low-Wage Employment: Evidence from Seattle,” National
Bureau of Economic Research Working Paper no. 23532, June 34. E. Saez, B. Schoefer, and D. Seim, “Payroll Taxes, Firm Be-
2017. havior, and Rent Sharing: Evidence from a Young Workers’ Tax
Cut in Sweden,” American Economic Review, forthcoming.
25. E. Jardim et al., “Minimum Wage Increases and Individual
Employment Trajectories,” National Bureau of Economic 35. M. Caliendo, C. Schröder, and L. Wittbrodt, “The Causal
14

Effects of the Minimum Wage Introduction in Germany: An a subset of workers place quite high valuations on flexible work
Overview,” IZA Discussion Paper no. 12043, 2018; M. Calien- arrangements. See A. Mas and A. Pallais, “Valuing Alternative
do et al., “The Short-Run Employment Effects of the German Work Arrangements,” American Economic Review 107, no. 12
Minimum Wage Reform,” Labour Economics 53 (August 2018): (2017): 3722–59; additional research uses a field experiment to
46–62.; and M. Caliendo et al., “The Short-Term Distributional pin down evidence that, conditional on two jobs having the
Effects of the German Minimum Wage Reform,” IZA Discus- same pay, individuals are more likely to apply for the jobs with
sion Paper no. 11246, 2017. the more flexible schedule. See H. He, D. Neumark, and Q.
Weng, “Do Workers Value Flexible Jobs? A Field Experiment
36. J. Horton, “Price Floors and Employer Preferences: Evidence on Compensating Differentials,” National Bureau of Econom-
from a Minimum Wage Experiment,” working paper, Leonard ic Research Working Paper no. 25423, January 2019.
N. Stern School of Business, New York University, July 17, 2018,
unpublished, PDF file. 42. N. Maestas et al., “The Value of Working Conditions in the
United States and Implications for the Structure of Wages,” Na-
37. A. Manning, Monopsony in Motion: Imperfect Competition tional Bureau of Economic Research Working Paper no. 25204,
in Labor Markets (Princeton, NJ: Princeton University Press, October 2018.
March 3, 2003).
43. I. Sorkin, “Ranking Firms Using Revealed Preference,” Quar-
38. Manning, Monopsony, p. 3. terly Journal of Economics 133, no. 3 (2018): 1331–93.

39. Unemployment insurance data reveal that the typical un- 44. For an example of earlier work, see R. Kaestner and K. Si-
employment spell lasts roughly 10 weeks. See Federal Reserve mon, “Do Minimum Wages Affect Nonwage Job Attributes?
Economic Data (website), “Median Duration of Unemploy- Evidence on Fringe Benefits,” Industrial & Labor Relations Re-
ment (UEMPMED),” Federal Reserve Bank of St. Louis. Data view 58, no. 1 (2004): 52–70; for examples of more recent work,
in the American Time Use Survey (ATUS) suggest that job- see J. Clemens, L. Kahn, and J. Meer, “The Minimum Wage,
seekers spend just over two hours actively searching for work Fringe Benefits, and Worker Welfare,” National Bureau of
on days during which they search; see C. Adams, J. Meer, and Economic Research Working Paper no. 24635, May 2018. Two
C. Sloan, “The Minimum Wage and Search Effort,” National recent conference presentations suggest that other research-
Bureau of Economic Research Working Paper no. 25128, Oc- ers are seeing similar negative correlations between minimum
tober 2018. Surprisingly, the unemployed report spending two wages and EPHI in recent data from both the American Com-
hours on searching roughly one day per week. Multiplied by 10 munity Survey and the Current Population Survey. See A.
weeks, this suggests that the typical job search entails roughly Gooptu and K. Simon, “The Effect of Minimum Wage Laws
20 hours of active search. A more generous estimate might as- on Employer Health Insurance: Do Outside Options Matter?,”
sume two hours of search on five days each week. This suggests 39th Annual Fall Research Conference, Association for Public
100 hours of search over the course of a 10-week unemploy- Policy Analysis & Management, November 4, 2017 (conference
ment spell, or 200 hours over a 20-week spell. Because the data paper); see also C. Eibner et al., “Do Minimum Wage Changes
imply far fewer days of search per week, this is a strong upper Affect Employer-Sponsored Insurance Coverage?,” 7th Con-
bound on the search time consistent with the ATUS. ference of the American Society of Health Economists, June
11, 2018 (conference paper).
40. S. Rosen, “The Theory of Equalizing Differences,” in
Handbook of Labor Economics, eds. O. Ashenfelter, P. R. G. La- 45. H. Ku, “Does Minimum Wage Increase Labor Produc-
yard (Amsterdam: Elsevier North Holland Publishing Co., tivity? Evidence from Piece Rate Workers,” working paper,
1986) 1: 641–92. Department of Economics and CReAM, University College
London, April 2018, unpublished, PDF file; and D. Coviello, E.
41. One recent paper finds, for example, that real-time flex- Deserranno, and N. Persico, “Minimum Wage and Individual
ibility of hours has high value to Uber drivers. See M. K. Chen Worker Productivity: Evidence from a Large U.S. Retailer,”
et al., “The Value of Flexible Work: Evidence from Uber Driv- working paper, Workforce Science Project of the Searle Cen-
ers,” National Bureau of Economic Research Working Paper ter for Law, Regulation, and Economic Growth, Northwestern
no. 23296, March 2017; additional research similarly finds that University, February 1, 2018, unpublished, PDF file.
15

46. D. Aaronson and B. J. Phelan, “Wage Shocks and the Tech- Increases,” IZA Institute of Labor Economics Discussion Pa-
nological Substitution of Low-Wage Jobs,” Economic Journal 129, pers no. 11748, August 2018.
no. 617 (January 2019): 1–34; and G. Lordan and D. Neumark,
“People Versus Machines: The Impact of Minimum Wages on 49. I. Sorkin, “Are There Long-Run Effects of the Minimum
Automatable Jobs,” Labour Economics 52 (June 2018): 40–53. Wage?,” Review of Economic Dynamics 18, no. 2 (April 2015): 306–
33; and D. Aaronson et al., “Industry Dynamics and the Mini-
47. J. Clemens, L. Khan, and J. Meer, “Dropouts Need Not Ap- mum Wage: A Putty-Clay Approach,” International Economic Re-
ply: The Minimum Wage and Skill Upgrading,” (unpublished view 59, no. 1 (February 2018): 51–84.
working paper, September 3, 2018) PDF file.
50. J. Meer and J. West, “Effects of the Minimum Wage on
48. J. Clemens, D. Hobbs, and M. Strain, “A Database on the Employment Dynamics,” Journal of Human Resources 51, no. 2
Passage and Enactment of Recent State Minimum Wage (2016): 500–22.
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