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COORDINATING MONETARY, FISCAL and FINANCIAL POLICY a Submission to the Treasury Committee of the UK Parliament COORDINATING MONETARY, FISCAL AND FINANCIAL POLICY A Submission To The Treasury Committee Of The UK Parliament Roger E A Farmer, Research Director for Macroeconomics NIESR, Professor of Economics University of Warwick and Distinguished Professor of Economics, UCLA NIESR Policy Paper. 002 Policy papers are written by members of the National Institute of Economic and Social Research to address a public policy issue. These may be evidence submitted to a public or parliamentary enquiry or policy research commissioned by a third party organisation. In all circumstances the NIESR authors have full editorial control of these papers. We will make all policy papers available to the public whether they have been supported by specific funding as a matter of course. Some papers may be subsequently developed into research papers. Date: March 2017 About the National Institute of Economic and Social Research The National Institute of Economic and Social Research is Britain's longest established independent research institute, founded in 1938. The vision of our founders was to carry out research to improve understanding of the economic and social forces that affect people’s lives, and the ways in which policy can bring about change. Seventy-five years later, this remains central to NIESR’s ethos. We continue to apply our expertise in both quantitative and qualitative methods and our understanding of economic and social issues to current debates and to influence policy. The Institute is independent of all party political interests. National Institute of Economic and Social Research 2 Dean Trench St London SW1P 3HE T: +44 (0)20 7222 7665 E: [email protected] niesr.ac.uk Registered charity no. 306083 This paper was first published in March 2017 © National Institute of Economic and Social Research 2017 Coordinating Monetary, Fiscal and Financial Policy A Submission to the Treasury Committee of the UK Parliament Roger E. A. Farmer, Research Director for Macroeconomics NIESR, Professor of Economics University of Warwick and Distinguished Professor of Economics, UCLA Abstract UK monetary policy, following the 2008 recession, was effective at preventing the crisis from having a bigger effect than it otherwise might have done. As a result of experimenting with quantitative easing (an expansion in the Bank’s balance sheet) and qualitative easing (a change in the risk composition of its balance sheet) we learned some important lessons. This submission to the Treasury Select Committee summarizes my understanding of what those lessons were and what they teach us about the future conduct of monetary, fiscal and financial policy. Whenever my recommendations differ from the existing dominant macroeconomic paradigm, I explain why. Contact details Roger Farmer ([email protected]), National Institute of Economic and Social Research, 2 Dean Trench Street, London SW1P 3HE 1 | Coordinating Monetary, Fiscal and Financial Policy - A Submission to the Treasury Committee of the UK Parliament National Institute of Economic and Social Research, Policy Paper 001 Coordinating Monetary, Fiscal and Financial Policy A Submission to the Treasury Committee of the UK Parliament By Roger E. A. Farmer, Research Director for Macroeconomics NIESR, Professor of Economics University of Warwick and Distinguished Professor of Economics, UCLA _______________________________________________ 1. UK monetary policy, following the 2008 recession, was effective at preventing the crisis from having a bigger effect than it otherwise might have done. As a result of experimenting with quantitative easing (an expansion in the Bank’s balance sheet) and qualitative easing (a change in the risk composition of its balance sheet) we learned some important lessons. This submission to the Treasury Select Committee summarizes my understanding of what those lessons were and what they teach us about the future conduct of monetary, fiscal and financial policy. Whenever my recommendations differ from the existing dominant macroeconomic paradigm, I explain why. I. Recommendations for Policy A. The existing mandate for the MPC of maintaining 2% inflation is appropriate and should be maintained. The MPC should, however, reconsider the methods it uses to achieve that target. B. Monetary, fiscal and financial policy should be coordinated. In the absence of an increase in confidence, an expansion in fiscal policy, or a recovery in the world economy, the UK may continue to fail to meet the 2% inflation target for a protracted period. C. If the inflation rate does not increase in the absence of additional policy actions, the MPC should increase the interest rate to hit the inflation target. To be effective, a policy of this kind must be coordinated either with a fiscal expansion or with an intervention in the asset markets through open market purchases of risky assets. D. A coordinated policy of higher interest rates, combined with a fiscal and or financial stimulus is inconsistent with an independent exchange rate target. It will likely cause an initial appreciation of the exchange rate as foreign investors take advantage of higher UK interest rates. E. As a permanent component of future financial policy, the FPC should actively intervene in the asset markets by buying and selling assets that alter the risk composition of the Bank’s balance sheet. There should be no presumption that the financial markets know best. They don’t. The FPC can and should maintain a price for the average value of publicly traded equities that is consistent with full employment. II. Executive Summary 2. The MPC is guided by a set of principles, the dominant paradigm, inherited from the economics profession. The dominant paradigm provides a framework that most, if not all, MPC members use to interpret their roles as public servants. 3. At the core of the dominant paradigm, are two concepts, the Non-Accelerating Inflation Rate of Unemployment, also known as the NAIRU:1 And the natural rate of interest, also known 1 The NAIRU is sometimes referred to as the Natural Rate of Unemployment. Here, I use these terms interchangeably. 2 | Coordinating Monetary, Fiscal and Financial Policy - A Submission to the Treasury Committee of the UK Parliament National Institute of Economic and Social Research, Policy Paper 001 as r-star. According to the dominant paradigm, the MPC cannot alter the NAIRU or r-star; they are, possibly time-varying, numbers. 4. Because the NAIRU and r-star are unobservable and time-varying, the dominant paradigm is irrefutable. Any set of observable facts can be interpreted through the lens of the dominant paradigm. It is religion: not science. A failure of the expectations of the members of the MPC, to conform with the ex-post facts, is explained by a change in the NAIRU or in a change in unobservable r-star. 5. The NAIRU was introduced by Milton Friedman in his 1968 Presidential Address to the American Economic Association. In that address, Friedman overturned two decades of economics that followed from the ideas of John Maynard Keynes. 6. There is increasing evidence that the dominant paradigm is wrong.2 Evidence against the NAIRU comes from the persistence of low growth and high unemployment that lasted for years rather than months after the end of the last recession. Evidence against r-star comes from the persistence of permanently lower real interest rates. Evidence against both the NAIRU and r-star comes from the inability of the MPC to hit its 2% inflation target even as unemployment continues to fall. III. Take Away Points A. There is no NAIRU. Any unemployment rate between 0 and 100% is consistent with the MPC’s inflation target of 2%. B. There is no r-star. The long-run real interest rate is influenced by fiscal and monetary policy. C. There is a socially optimal unemployment rate. Too much unemployment is a waste of social resources. Too little unemployment is also a waste of resources. D. In the absence of intervention by government, there is no natural tendency for a market economy quickly to gravitate to the socially optimal unemployment rate. E. The actual unemployment rate at a point in time is determined by four factors; a. Confidence in the financial markets, (so called animal spirits of investors) b. Fiscal policy c. Monetary policy d. Financial Policy F. Because confidence is reflected in stock market valuations, it is directly influenced by the asset composition of the Bank’s portfolio. G. Maintaining financial stability is central to preventing a recurrence of the Great Recession.3 IV. Some Questions Raised by the Treasury Committee Interest rates are currently ‘stuck near zero’. Can they be raised soon without choking off the recovery and causing a new recession? 7. Yes. As long as the increase in the interest rate is accompanied either by a fiscal expansion in the form of a tax cut or increase in government purchases: or by an asset market intervention that counteracts any possible fall in the value of the stock market. 8. If the MPC were to raise the interest rate, in the absence of any other policy change, historical experience suggests that the outcome would be a recession. Unemployment would increase and growth would fall, possibly by a substantial amount. But, if an interest 2 Farmer R.E., 2010. Farmer R. E., 2013. 3 Farmer R. E., Prosperity for All: How to Prevent Financial Crises, 2016. 3 | Coordinating Monetary, Fiscal and Financial Policy - A Submission to the Treasury Committee of the UK Parliament National Institute of Economic and Social Research, Policy Paper 001 rate increase were to be coordinated with a substantial fiscal expansion, or by an asset market intervention to prevent a market crash, the combined effect of these policies would increase the inflation rate without triggering a recession. 9. Is it plausible that inflationary expectations could be reversed overnight? Yes: There have been many historical episodes in which inflationary expectations have been rapidly reversed, for example, Austria, Hungary, Poland and Germany in the 1920s.4 In each of these cases, inflationary expectations were quickly turned around by the combination of a tightening of monetary policy in conjunction with a fiscal consolidation.
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