Assumptions–Central Forecast

We continue to make our best guesses about likely policy developments rather than assuming 'unchanged' policies. In the central forecast we assume that the broad thrust of policy is unchanged, i.e. we have made the technical assumption that the present government is returned in the next General Election. But, because an election must be held within the next 15 months, we also consider the medium-term prospects under alternative economic policies. (For details see p. 19.) In the central forecast. e herefore. we assume that policy will continue to be guided-though not completely determined-by an extended Medium- Term Financial Strategy (MTFS). For 1983-4 the MTFS requires the PSBR to be 23/4% per cent of GDP at market prices. Given official inflation and output forecasts, the Chancellor is therefore aiming for a 1983-4 PSBR of £8bn (Autumn Statement, p. 13). In the central forecast. however, we have assumed that the Budget of 15 March will give greater weight to the political objectives of cutting income tax and maintaining the attack on inflation, even if this implies slippage from the MTFS targets. Specifcally we have assumed that the standard rate of income tax will be cut by lp. that personal tax allowances will be raised by 12 per cent and that indirect taxes will be raised by only half the amount required for full revalorisation. This amounts to a total tax giveaway (compared with unchangedpolicy) of £1 1/2 and results in a PSBR of just over £9bn. 3.1 per cent of GDPat market prices.     

POST-BUDGET ASSESSMENT AND ANALYSIS OF OIL PRICE CHANGES

In this Forecast Release we update our February forecast to take account of the Budget and other new information, particularly about oil prices and the exchange rate. This updated forecast is then used as the basis for a set of three simulations in which we explore the consequences of lower oil prices, a fall in the exchange rate and a tightening of fical and monetary policy. The main conclusions are first that the Budget (the contentr of which we broadly anticipated) has not significantly changed our assessment of the short-term prospects for output and inflation. However, a detailed examination of the Government's revenue and expenditure estimates suggests that fiscal policy in 1983-4, though broadly in line with the Medium-Term Financial Strategy, has been loosened compared with 1982-3 by rather more than appears from the PSBR projections. We ako believe that there is a risk that the PSBR will be significantly higher than officially forecast in 1983-4.
Our simulations show the size of the PSBR overshoot in the event of a further sharp fall in the oil price. I f this were accompanied by a fall in the exchange rate, inflation would quickly be back in double figures. Whether the exchange rate falls or not a lower oil price gives significant output gains. However, if the authorities reacted by tightening fiscal and monetary policy, inflation would be broadly the same as in the Post Budget forecast, but there would still be output gains from the lower oil price.     

THE 1981 BUDGET

In this Forecast Release we examine the short-term prospects for the UK economy in the light of the Budget and other developments. Compared with our February forecast the Budget has raised taxes by about £2 bn but it has also increased public expenditure by a similar amount The net effect on the PSBR, compared with our February forecast, is therefore small, especially if the Treasury's estimates for nationalised industry profits and/or public sector wages prove over-optimistic. We therefore believe that the outturn for the PSBR in 1981-82 could be close to the figure of £12 bn presented in our last forecast.
We also believe that the prospects for output and inflation are little changed The Budget by itself will have raised prices by about 1 per cent compared with our previous forecast but because we had probably over-estimated indirect tax receipts, the net effect on prices is small For output, the likely reduction in consumers' expenditure is more or less offset by higher public spending. We continue to expect a fall in output between 1980 and 1981 of 1–11/2 per cent, inflation during the year at about 10 per cent, a current account surplus of £3 bn, monetary growth of 8 to 9 per cent and a PSBR of £12 bn.     

The First Unified Budget What Should Mr. Clarke Do?

Mr. Clarke has the distinction of presenting the first Unified Budget, an innovation introduced by his predecessor. He does so against a subdued inflation outlook and a recovery from recession that has been proceeding since the first half of last year. But he is also aware that there are risks to this favourable outlook: European recession may slow growth, and there is the worry that underlying inflation may breach the Government's 4 per cent ceiling. III this Viewpoint, we argue that the Chancellor should go further that his predecessor in curbing public borrowing, aiming for a reduction of sonic £4-5bn; this fiscal contraction could be accompanied by a further 0.5 per cent reduction in interest rates, or more if the recovery shows signs of faltering. A rebalancing of monetary and fiscal policy in this way reduces the risks associated with a high level of public borrowing, can help in reducing the excessive level of consumption (private and public) in the UK economy, and offers the best means of maintaining a competitive exchange rate without inflation. A curious feature of the first Unified Budget is that, having moved tax decisions to the autumn, the Chancellor appears to have ruled out further government spending cuts beyond those agreed by the Cabinet before the summer: with more favourable inflation arid the public sector pay limit, there would seem to be scope for a further reduction in the Control Total. On the revenue side, the Chancellor should seek to raise revenues in such a way that does not adversely affect incentives. Here he has several options: to extend the VAT net; to eliminate income tax allowances or reduce them to the 20p rate of tax; or to introduce new user charges. There is also the opportunity, one year on from the UK's exit from the ERM, to restate the basis for a sustainable macroeconomic framework. This should include a rebalancing of monetary and fiscal policy, and a move to enhance the powers of the Bank of England but with parliamentary accountability.     

Comment:The Statistical Relationship between the Money Supply and the Public Sector Borrowing Requirement

A controversy has recently broken out as to whether the PSBR influences the money supply in the UK. Clearly if this relationship does not exist much of the basis of the government's macroeconomic strategy falls away since the government is acting on the assumption that by controlling the PSBR it will be able to control money supply growth and hence inflation in the medium term. This argument has been forcibly stated in the recent Green Paper on Monetary Control (Cmnd 7858) and is enshrined in the Medium-term Financial Strategy that was announced in the March Budget.     

THE AUTUMN STATEMENT

The Treasury's forecast, published with the Autumn Statement, has been widely heralded as showing a surprisingly cheerful picture for next year as far as both output and inflation are concerned. In fact it is close to the forecast which we produced in October. Here we compare the two forecasts and then consider how our forecast is affected when we adopt the Treasury assumptions on asset sales and the exchange rate. We find that the Treasury is more optimistic than we are on investment and that holding the exchange rate - which is needed to produce the official inflation forecast - requires rather higher interest rates than we assumed in October and this widens the gap between our forecast for GDP and the Treasury's forecast.
We also consider how the government should respond to lower North Sea oil revenues. Taking a permanent income approach, we suggest that the PSBR should be allowed to rise by £2bn on this basis. The same approach, however, suggests that an extra £71/2bn of asset sales should be used to cut the PSBR not taxes. On balance therefore this analysis indicates that next year's PSBR target should be lowered by £1/2bn from the £71/2 bn contained in the 1985 MTFS.     

Forecast Summary

Backed by the lowest interest rates in fifteen years and a competitive exchange rate, we see the economy moving off the corrugated bottom of last year and recovery gathering pace as this year progresses. We expect output to rise 1.4 per cent this year, 0.5 per cent more than we forecast in October when we were expecting a far more cautious approach on interest rates, and 3 per cent in 1994. Here we have factored in another 1 per cent cut in base rates to coincide with the Budget on 16 March but this may prove to be the floor, especially if, as is rumoured, the Prime Minister has vetoed tax increases in the Budget for fear of derailing a fragile recovery. By the end of the year, however, we expect the trend in interest rates to be upwards to halt a sliding exchange rate and to cap the devaluation-induced price increases that will be feeding into domestic prices by then. On this basis we believe that inflation can be contained at 4 per cent underlying this year, 5 per cent in 1994 - outside the Chancellor's target range. While we are more sanguine than before on the outlook for output and inflation, major problems remain on the PSBR and the balance of payments. Beginning in the December Budget, the Government will have to raise taxes to avoid a debt spiral on the budget deficit and channel resources into net exports. Even on the basis of a £4bn tax hike in the first of the unified Budgets, we expect the PSBR to run along close to £50bn and the current account deficit in the £15bn-20bn range.     

UK Forecast in Detail

The Chancellor presented the final Budget of the parliament on 18 March. Mr Osborne revisited regular themes, with a further increase in the tax free personal allowance and more help for savers, with these giveaways financed by additional revenues from banks and tax avoiders. The macroeconomic impact of the measures is likely to be negligible.…     

The London Business School with Gower Publishing

In October we forecast 1 per cent output growth in 1993 accompanied by little change in retail price inflation, an increase in unemployment to 3.2 million by the end of the year and a £20bn deficit on the current account of the balance of payments. Since then we have revised our view of the international outlook and the Chancellor has made his Autumn Statement. There are also some hopeful signs in the latest data on retail sales, manufactured exports and the money supply that demand may be picking up both domestically and overseas. How do these developments affect our short-term forecast? The simple answer is very little: the outlook on output and inflation in 1993 is barely changed since October (Table I). We have lowered our forecasts for world inflation and for German interest rates which means that the pound can be held steady against the DM at lower UK interest rates and that the inflationary consequences of devaluation, though significant, are slightly less over the medium term than we made out in October. There is one revision of major significance, and that relates to the PSBR, which is now likely to reach f45bn in 1993-4, more than 7per cent of nominal GDP. The change is not on the spending side - the Autumn Statement confirmed existing expenditure plans - but on revenues, notably corporate taxes and tares 011 spending, which have fallen far more quickly than we envisaged. This, in combination with a projected near-2'per cent of GDP deficit on the balance of payments, poses a difficult medium-term policy dilemma. To escape from the twin deficits requires either deflation of demand, which conflicts with the Government's new-found commitment to growth, or a more buoyant economy to boost tax revenues and a competitive pound to underpin export-led growth. Of the two the latter is self-evidently more inflationary. This highlights the policy dilemma: at some stage the Government may have to choose between reducing the deficits and its 1–4 per cent inflation target or sacrifice its commitment to growth.     

(5) Focus: Forecast Revisions

In this section we examine the current forecast together with its immediate predecessors to see how the forecast itself has changed over the last year. The conclusion is that we have become progressively more optimistic in the last 12 months about prospects for both output and inflation. The two are connected: the lower inflation outturn has contributed to higher consumers' expenditure and hence to output. On the PSBR and the current account of the balance of payments, given the large margins of error attached to these forecasts, we have not changed the main thrust of the forecast: in the next four years a declining PSBR and approximate current account balance remain the most likely outturn.     

A BUDGET FOR STERLING AND A BUDGET FOR JOBS

In our assessment macroeconomic policy is now tighter as consequence of the Budget than we had assumed in February. We interpret the Budget speech as indicating higher interest rates (tighter monetary policy) and, in consequence, a stronger exchange rate. On this basis we find that the prospects for inflation are slightly better than before, though output is weaker. Additionally we forecast a PSBR in 1985-6 of £ 63/4bn, below the official forecast of £7.1bn but in line with our February forecast. Of £7.1bn but in line with our February forecast. Because output is lower, however, this implies a tighter fiscal policy.
The other main change to our forecast is unemployment. The changes to National Insurance Contribution scales represent a very cheap way of reducing the cost of employing the lower paid, and we estimate that these measures, together with the extension of the Youth Training Scheme and Community Programme, will create an extra 375,000 jobs and training places by 1988. However these effects are partially offset by the effects on output of the higher interest rates and higher exchange rate that we are now forecasting. When account is also taken of the increase in labour supply that follows any increase in employment, the net effect on unemployment is to reduce it by 300,000 by 1988 compared with our February forecast.     

THE TREASURY'S BUDGET

This year's Budget not only marked the end of Thatcherism, it also pointed to a shift in power back towards the Treasury. Mrs. Thatcher's favoured approach on local finance, child benefit and mortgage tax relief were unceremoniously dumped and replaced by the Treasury emphasis on fiscal neutrality and marginal tax rates. We discuss what this might mean for future Budgets. The Treasury forecast is extremely gloomy, predicting a 2 per cent drop in output this year. We remain more optimistic and, as in February, expect a revival in consumer spending to lead the recovery over the next few months. Despite our stronger output forecast, we endorse the Treasury view that inflation and the current account deficit will fall sharply this year.     

UK Budget 2003 — Will taxes have to rise?

The Budget was a non-event from a macroeconomic perspective, with the Chancellor announcing virtually no net discretionary change in the fiscal stance. But he had to raise his public borrowing forecasts significantly to reflect the impact of the economic downturn on revenues, even though he has allocated all of the costs of the Iraqi war to last year. The Treasury projections for GDP growth and the public finances remain on the optimistic side, and he is leaving himself less and less room for maneouvre in the medium term. Taxes may well have to go up at some point in the next few years, especially if there are pressures for a pre-election public spending boost. But EMU membership — which would require the Chancellor to commit to balancing the budget over the cycle — looks to be some way off. The Chancellor's main focus was on microeconomic initiatives to improve the flexibility of the economy. But the measures announced in the Budget are not substantial enough to have a major impact on the UK's supply-side performance.     

THE 1987 BUDGET

Our pre-Budget forecast published last month correctly anticipated the main Budget measures (with the exception of the decision not to re-valorise excise duties) and is very close to the Treasury's own forecast. We have updated the forecast for the Budget measures and other new information. Compared with the February Economic Outlook, our post-Budget assessment has revised down slightly the short-term forecast for output, inflation and the current account deficit. Consequently we share the Treasury's view that output will rise 3 per cent this year, but we are a little more optimistic on the outlook for inflation and the current account.
In holding the PS BR to last year's expected outturn of £4bn, and more particularly in cutting the PSFD by £11/2zbn, the Budget represents a tightening in fiscal policy. Whether the overall policy stance is tightened depends on the response of the monetary authorities. Early indications are that the government will prevent interest rates from falling as far or as fast as they would otherwise do and that the exchange rate will be allowed to rise. This implies a tightening of policy in order to head off problems on inflation or the balance of payments. This argument is supported by the Treasury's own forecast, which is more pessimistic on both inflation and the current account than its predecessor in the Autumn Statement, and explains the Chancellor's decision not to re-valorise excise duties. The post-Budget forecast incorporates this change in policy. We now assume that the sterling index averages 70 this year and that base rates fall to 9 per cent by the end of the year.     

Forecast Release

Although the Chancellor did not say in so many words precisely what lay behind his thinking on the Budget, the implicit message was clear. His aim was to rebalance fiscal and monetary policy, tightening the former so that the monetary relaxation that we have already had does not have to be quickly reversed. In so doing, he has increased the chances that interest rates can stay lower for longer than would have been the case if he had not acted on the PSBR. The reaction of the foreign exchanges critical but again the Budget makes it more likely that the devaluation of the pound since last September can be made one off, not the precursor to a prolonged downward float. This is a necessary condition for a 'successful' devaluation, but it is not sufficient: the wage response is also critical. High unemployment is helpful in this respect, though it has not stopped us frittering away the benefits of previous devaluations. Our February forecast was pessimistic on the UK's ability to hold onto the competitive advantage that devaluation brings; the Budget, while short on monetary underpinning, increases the odds in favour of a more optimistic outturn.     

THE OUTLOOK FOR 1988

We have updated our October forecast to take into account recent events in equity and foreign exchange markets as well as the Autumn Statement. As far as the prospects for the world economy are concerned, we have taken a gloomier view than the Treasury. On this basis we also obtain slower growth in the UK next year: output is forecast to rise 2.2 per cent compared with 2.8 per cent in October and 2.7 per cent in the official forecast. Inflation and the balance of payments are little changed from October. For next year's Budget we continue to assume a cut in the standard rate of income tax to 25 per cent though, on our calculations, this requires a PSBR it 1988–9 of newly £2bn whereas the Autumn Statement forecast assumed a constant PSBR of £1bn     

The London Business School with Gower Publishing

The Budget embodies many of the recommendations that we have put forward over the last year -on personal savings and the appropriate stance of macroeconomic policy - but a void remains on the key issue of ERM entry. With inflation set to rise above 9 per cent in the short term, there is a danger that an inflation l sterling depreciation cycle becomes entrenched. In fiscal terms, the Budget was broadly neutral and the Chancellor con- firmed that the strategy is to rely on high interest rates to support the exchange rate and tame inflation. This year, with base rates of 15 per cent, we expect the pound to remain reasonably stable but in 1991-2, as interest rates fall -which they are bound to ahead of the election -the pound could well come under pressure, so putting the government's inflation objectives at risk. ERM entry would provide the obvious support and is consistent with the Treasury forecast. Without it, inflation is unlikely to fall below 5 per cent next year.     

Forecast Summary

A pause in world activity held back UK industry in the first quarter of the year and, even though we expect faster growth from now on, we forecast total output growth of only 2 per cent this year. But next year a stronger world economy and pre-election tax cuts lift growth to 3 1/4per cent. Lower oil prices and falling interest rates help keep inflation at its current level both this year and, as long as wages respond, next. In the medium term we expect the growth rate to fall back but, assuming that a fairly tight fiscal policy is pursued by whichever government is in power, we predict that inflation stays below 3 per cent     

Economic Viewpoint: Does broad money matter?

Last October the Chancellor of the Exchequer suspended the target for the broad money supply (£M3). It was reinstated in this year's Budget with a range of 11 to 15 per cent. Its growth is currently exceeding even that apparently generous target. (On the terms of the original Medium-Term Financial Strategy in 1980, the growth should have been cut to 5 to 9 per cent by 1983–4.) Does this rapid growth of £M3 matter? Does it raise the threat of higher inflation some time in the future, or can the government now readily abandon £M3 completely and concentrate instead on some other measure of the money supply – or indeed abandon monetary targeting altogether? The relevance of £M 3 as an intermediate target depends on whether there is a stable demand for it. We report econometric evidence which suggests that there is a stable demand for £M3, which depends, among other things, on the rate of inflation. We believe that the unexpectedly rapid growth of the money supply since 1981 partly reflects an adjustment of desired money balances to lower inflation. But once this process of adjustment is complete, monetary growth must be brought to far lower levels. We conclude that the government should continue to use £M3 as an intermediate target, supported, as at present, by a narrow measure.     

Assumptions

We continue to make our best guesses about likely policy developments rather than assuming 'unchanged' policies. In particular we assume that the Budget in the spring of 1983 will give greater weight to the political objective of cutting income tax than to maintaining the fiscal and monetary limits set by the Medium-Term Financial Strategy (MTFS). We therefore expect the PSBR, after falling below the planned level in the current financial year, to rise above the target jigure in the 1983-4 and 1984-5 financial years. We expect sterling M3 growth to mirror this and to be siightly below the upper end of its target range for the current financial year, slightly above in the following two financial years. The MTFS does not cover the period beyond 1984-5. We assume that the broad objective of reducing the PSBR is continued in 1985-6 and 1986-7. despite the expected overshooting of targets in earlier years.