A QUANTITATIVE ANALYSIS OF CBI & FED CHAIR HAWKISHNESS
By Hansen Wetsel
APRIL 23, 2019 POSC 3410: DR. BUSBY WORD COUNT: 4341 INTRODUCTION The Federal Reserve is the central bank of the United States. It consists of ~2,000 commercial banks, 12 regional banks in major metropolitan areas, a Federal Advisory Committee, the Board of Governors, and the Federal Open Market Committee (Mishkin 2016). Since its formation in 1913, the Fed’s principle functions include: “maintaining full employment, price stability, and moderate long-term interest rates through inflation control (Legal Information Institute 2019).” Most observers would conclude that the decentralized organizational structure of the Federal Reserve should prevent any one entity from disproportionately influencing how U.S. monetary policy is determined. However, this is not the case in practice. Atop the U.S. central banking hierarchy sits the Chairman of the Federal Reserve. This individual is chosen by the President of the United States and confirmed by the Senate to serve a four-year term. During their tenure, it is the Fed Chair’s responsibility to regulate the U.S. money supply through a combination of strategies, which include buying and selling government bonds through the FOMC, setting interest rates for inter-bank lending, and paying interest on reserves held by banks within the Federal Reserve system (Cowen and Tabarrok 2015). Since the Fed Chair is appointed by the President, an agent beholden to the ebb and flow of political sentiments, concerns naturally arise as to how independent the Chairperson will be in their implementation of monetary policy. Central bank independence (CBI) and political business cycles (PBC) are well-documented phenomena that have pertinent applications for understanding the intersection between economics and political science. PBCs refers to when expansionist monetary policies are implemented, thus lowering unemployment and interest rates immediately prior to an election and improving the incumbent’s chances of being re-elected (Mishkin 2016). By linking monetary policy with the political fortunes of any agent, i.e. the President, short-run success is won at the expense of long-run financial stability. We can envision monetary policy as an extension of Newton’s Laws of Motion: for every action undertaken, an equal and opposite reaction is necessitated. Whenever expansionist policies are implemented in the absence of extenuating circumstances, re. negative supply or demand shocks, contractionist policies must be enacted to prevent an unsustainable rise in inflation and interest rates. When we consider that the economy is a dynamic construct with ebbs and flows of its own, any extraneous meddling in the administration of monetary policy exponentially increases the difficulty of an already complex task in maintaining economic stability. Central bank independence is a multi-faceted concept that can be disaggregated into two encompassing categories: instrumental and goal independence. In the context of the U.S. Federal Reserve, instrumental independence mainly refers to the Fed’s ability to conduct open market operations, or “the buying and selling of U.S. Treasury and government agency securities” (Mishkin 2016). All open market operations directly affect interest rates and the monetary base, with the latter resulting in an increase or decrease in the money supply. This is the preferred policy tool of the Federal Reserve because it can be precisely calibrated to attenuate market volatility and its effects are reversible. Goal independence is when the administrative agents of a central bank, e.g. the Board of Governors and the Fed Chair, determine what policy outcomes should be pursued through the implementation of monetary policy. The United States Federal Reserve possesses a considerable amount of instrumental independence and a marginal amount of goal independence, yet it is ultimately accountable to Congress on account of its formation 1 under the Federal Reserve Act of 1913. However, aside from the three core functions enumerated at the outset of this paper, Congress permits the Fed considerable leeway in determining which policy objective(s) to pursue at any point in time depending on the U.S. financial market’s macroeconomic trends. Given the Fed Chair’s central role in determining what monetary policy should be undertaken in response to economic contextual factors, their behavior is subject to a considerable amount of scrutiny and analysis. Fed Chairpersons are often characterized as being either ‘hawks’ or ‘doves.’ The terms hawkish and dovish traditionally refer to the Fed’s tolerance for inflation. Whereas hawks prefer aggressive policies, maintaining high interest rates, to prevent asset devaluation, doves prefer low interest rates that boost aggregate economic growth by incentivizing banks to lend money more readily. Striking a moderate balance between these two policy preferences is what enables the Federal Reserve to attenuate business cycle volatility. Basic monetary theory argues in favor of gradually raising interest rates during economic booms so that there is room to lower them during a financial crisis. Regardless of the Fed’s course of action, raising, lowering, or keeping interest rates at their pre-existing level sends a clear, discernable signal to the business community about how policymakers view the overall health of the U.S. economy; are they bullish (optimistic) or bearish (pessimistic)? The interplay between these ‘animal spirits’ can substantially affect the trajectory of market cycles; negative or positive narratives become self-fulfilling prophecies. The relationship between CBI and efficacious monetary policy is well-established. Ergo, it is imperative that we conduct a thorough analysis of Fed Chair behavior to determine if there is any correlation between a particular set of policy preferences and independence (or a lack thereof) from the deleterious influences of opportunistic politicians. My research question is best summarized as: Is there a relationship between the level of hawkishness exhibited by a Fed Chair and their independence from the President who appointed them? As of this writing, Jerome Powell is the current Chair of the Federal Reserve, appointed by President Trump, and expected to complete his four-year term in 2022. But the current President’s unorthodox criticism of Federal Reserve Policy, combined with his penchant for disregarding long-established precedent, is contributing to speculation that Trump might fire Powell if he believes Fed Policy is inhibiting an economic boom, which was one of the President’s central campaign promises. Whether this undue pressure results in a volte-face by Mr. Powell in his administration of monetary policy remains to be seen, yet there is already unsettling prima facie evidence that the Fed is kowtowing to demands from the White House; see (Reuters 2019). THEORY & EXPECTATIONS My study addresses a gap in political science and economics literature concerning CBI, PBCs, and their relationship to the level of hawkishness exhibited by the Chairperson of the Federal Reserve. Previous studies focused on cross-sectional comparisons of central banks in different countries to evaluate an independence measure for each bank observed; values were calculated according to data primarily gathered from IMF databases (Alesina and Summers 1993; Arnone et al. 2006; Bade and Parkin 1982; Cukierman 2002). These measures for CBI would then be grouped according to their regional location or graphed against various statistical indicators reflecting aggregate economic performance to determine if there was a covariate relationship between CBI and macroeconomic outcomes. The prevailing consensus amongst researchers is 2 that there is significant and substantive empirical evidence in favor of rejecting the null hypothesis of no relationship between inflation rates and central bank independence (Alesina and Summers 1993). Geographically, there is empirical evidence that the effect of CBI on monetary policy is more substantial at the margin in countries with strong democratic institutions, which will have to be controlled for in my analysis of the Federal Reserve (Bodea and Hicks 2015). Nevertheless, these relationships do not causally explain long-run trends in macroeconomic performance for the periods observed. Researchers also examined how political business cycles relate to CBI (Alesina et al. 1992; Clark and Arel-Bundock 2013; Fair 1978; Grier 1987). Past studies analyzed whether a central bank chairperson’s background, re. political affiliation, affected their implementation of monetary policy and whether there was any correlation with an election cycle; were policies enacted to favor the candidate of one political party over another (Clark and Arel-Bundock 2013)? Although Fed Chair policy preferences were typically closer to the median Republican position, there was not enough evidence to conclude that monetary policy favored one party over another or affected electoral outcomes. However, studies did find evidence that a recurring cycle of money supply expansion would occur immediately prior to an election (Grier 1987). Despite this evidence, we cannot definitively reject the null that monetary policy is conducted independently of election cycles due to inconsistent findings in competing studies of the relationship between PBCs and CBI. There is a clear paucity of studies in which relationships between Fed Chair hawkishness, central bank independence, and political business cycles are analyzed. In the course of my study, I expect to find compelling evidence that comports with the theory originally posited by Kenneth Rogoff; there should be a statistically significant, positive correlation between an individual chairperson’s hawkishness and the level of CBI measured for the Federal Reserve in a given period (Rogoff 1985). Specifically, hawkish Fed Chairs will resist political overtures to implement expansionist monetary policies that artificially inflate asset prices by lowering interest rates (making credit more accessible), thus increasing the probability of an incumbent President being reelected. The hypotheses that I will test in the design section include the following: