The MTFS or the EMS: Which Way for Credible Monetary Policy?

Since the latter part of 1988, the primary policy objective has been to head off a rise to double digit inflation. To this end, interest rates have been raised from 7112 per cent to 14per cent, while the public sector is running a large fiscal surplus. Despite this apparently very tight policy stance, policy is deficient in a crucial respect: it lacks credibility. The all too public divisions within government have weakened the efficacy of monetary policy, especially in financial markets. The ongoing uncertainty over who is in charge of the conduct of policy - No. 10 or No. 11 - further undermines confidence. The most urgent priority must be to reassert clear priorities and guidelines. In this Viewpoint, we consider how best to restore the credibility of monetary policy. There are two main possibilities: first, to reassert the Medium Term Financial Strategy (MTFS) in an appropriate form; or to join the (Exchange Rate Mechanism of the) European Monetary System (EMS). We argue that it will be very hard to derive credibility benefits from a reassertion of the MTFS: because of the inflation record of the past decade and the twists and turns of past versions of the MTFS, a mere restatement will not resolve the uncertainties that result from known differences within the government. In particular, any restatement will rely on discretion and judgement in its implementation and this will weaken its beneficial effects on expectations. Instead we argue that entry into the EMS offers a tougher and more credible commitment for monetary policy. The Chancellor has been pushed to rule out UK entry until the second half of 1990 at the earliest, but the government should make a virtue of this by announcing a firm dale for entry next year. In the interim, it should encourage a debate about the appropriate rate for entry, a debate which will increasingly guide the foreign exchange market. The government should make it clear that in choosing this rate it will do so with the commitment to low inflation very much in mind, favouring a high exchange rate. Once in the EMS, the government should rule out the possibility of devaluing the pound in an EMS realignment. This provides a firm non- discretionary anchor for both monetary policy and inflation expectations. With this commitment, the principal gain from EMS entry will be establishing a regime of low inflation for the next decade: in this, choice of the exchange rate will be less crucial than the fact of entry.     

UK inflation set to tumble below target by autumn

• ? We expect CPI inflation to slow markedly this year, dropping below the 2% target by the autumn. The inflationary impulse from the 2016 depreciation is fading and should partially reverse, while global food and energy prices are expected to stabilise. Base effects will become increasingly important.
• ? CPI inflation reached a five‐and‐a‐half‐year high of 3.1% in November, up from a little over 1% a year earlier. The 2017 pick‐up in inflation was the result of a perfect storm of a weaker pound, higher oil prices and sharp rises in domestic electricity bills. But inflation has subsequently slowed, reaching 2.5% in March. And, after a brief hiatus, we expect the downward trend to continue as we move through the year.
• ? The key driver of lower inflation will be weaker core pressures. In line with the literature, there is already evidence that the impact of sterling's depreciation is fading, and we think that the pressures could partially reverse if sterling continues to strengthen. We see little prospect of an offsetting escalation in domestic cost pressures. The recent pick‐up in wage growth has been muted and a further acceleration above 3% looks unlikely while there remains slack in the labour market.
• ? The food, petrol and energy categories contributed 0.8 ppt to CPI inflation last year, compared with a drag of 0.5 ppt in 2016, as stronger global pressures combined with the weaker pound. But as global prices have been more subdued of late, by the end of 2018, we expect these categories to be contributing 0.5 ppt to CPI inflation.
• ? The final element behind the expected slowdown in inflation is base effects. The comparison with last year's strong price pressures will depress the 2018 inflation rate, and we see the base effects being at their strongest mid‐year.
• ? We think it unlikely that such a slowdown in inflation would derail the MPC from hiking interest rates twice this year. But it could temper its hawkishness in 2019.

     

THE AUTUMN STATEMENT

The short-term prospects for output are weaker than our October forecast suggested - manufacturing output fell 1.8per cent in the third quarter and the CBI survey indicates a sharp decline in business confidence. This is reflected in the Treasury's Autumn Statement forecast of GDP growth this year of only 1 per cent followed by 0.5per cent in 1991. With inflation now passing its peak, there would be a case for lowering interest rates but this is not possible with the pound below DM2.90 - the ill-judged reduction in base rates on ERM entry combined with the challenge to Mrs. Thatcher's leadership has pushed sterling deep into its lower ERM band. The principal unknown in the Autumn Statement forecast is the level of interest rates which, in the Treasury's judgement, will be necessary to keep sterling at or close to DM2.95. The Treasury may envisage only a very modest decline in base rates to 13 per cent next year. This could explain why their forecast is relatively gloomier than ours; alternatively the Treasury's underlying view could simply be more pessimistic. Nevertheless we show that the gap between the two forecasts can be eliminated if we change a limited number of assumptions - notably on interest rates, North Sea oil output, general government consumption and stock-building.     

Secular stagnation – are we stuck in Summers' long winter?

• We estimate that the UK has a relatively large output gap of around 2¾% of potential output. With the legacy of the financial crisis fading, the UK should see healthy growth in potential output of around 2.1% a year from 2015–24. Usually this would drive a period of strong economic growth, but we expect GDP growth to average a relatively underwhelming 2.4% a year over this period, largely due to the drag from aggressive fiscal consolidation.
• There is significant disagreement amongst economists about the size of the output gap. Estimation of the output gap has been problematic since the financial crisis because of the depth of the recession and relatively slow pace of the subsequent recovery, while sizeable revisions to the national accounts data have been an added complication. Our estimate of the output gap is towards the top of the range of independent forecasters surveyed by HM Treasury, but it is consistent with the literature on the impact of financial crises on potential output.
• We expect potential output growth of 2.1% a year from 2015–24, a faster pace than that seen since the financial crisis, but some way short of the experience of the pre‐crisis decade. The shortfall relative to the pre‐crisis period is largely due to a smaller contribution from growth in labour supply, which reflects the impact of an ageing population. However, labour is set to make a much stronger contribution to potential output growth in the UK than in most other major European countries over the next decade.
• The combination of a large output gap and healthy growth in potential output will provide the conditions for firm growth and low inflation over the medium term, with GDP growth expected to average 2.4% a year from 2015 to 2024. Growth could be stronger were it not for the sizeable drag from fiscal consolidation over the next four years and the dampening effect that this will have on activity. This will ensure that the output gap closes very slowly. The government's fiscal plans are heavily influenced by the OBR's view that there is limited scope for stronger growth to drive an improvement in the public finances. But if our view turns out to be correct, it will become apparent that the government has pursued a more austere path than is strictly necessary in order to comply with its fiscal rules.

     

WORLD OUTLOOK

After six years of steadily rising OECD output, fears of a significant rise in world inflation are now increasing. In the last year there has been a slight pick-up in inflation with producer prices up nearly d per cent. But prompt action by the Federal Reserve to raise interest rates before the presidential election appears to have damped inflationary expectations in the US and has given Japan and Germany an opportunity to tighten monetary policy without causing major currency fluctuations. It is also apparent that the other possible source of world inflation, commodity prices, is not a problem. OPEC over-production has ensured that the oil price remains weak and other commodity prices appear to have stopped rising after a brief acceleration at the beginning of the year. Nevertheless the major imbalances in world trade are declining only slowly and without a change in fiscal policy in the major economies it is difficult to believe that minor changes in monetary policy will be sufficient if the process of adjustment begins to falter. Despite these risks, we take a sanguine view of world prospects. Tighter monetary policy should effect a slowdown in world growth next year (already indicated by recent developments, particularly in the US) and this should be sufficient to control inflation which we expect to peak at just under 5 per cent at the beginning of next year. From 1990 onwards we see steady growth accompanied by low inflation.     

Forecast Summary

The forecast illustrates the costs and benefits of joining the ERM at the relatively high central parity of DM2.95. It shows that, providing the government does keep the pound within its wide 6 per cent EMS band, retail price inflation can be brought down to the average European level of 3 per cent by the mid 1990s. But there is a cost in terms of lower output and rising unemployment. GDP growth is expected to slow to about 1 1/2per cent this year and next and to average 2 per cent or slightly more from 1992 onwards. This is less than the rate of growth of productive potential and implies a weak labour market with unemployment rising steadily bock above 2 million. The forecast assumes a $25 oil price; in an alternative we sketch out the implications of a rise in the price to $45 for a limited period.     

World Economic Prospects

Overview: Global deflation – a genuine risk?

• The notable decline in inflation in the Eurozone, US and UK since mid-2013 has led to suggestions that a period of widespread price deflation across the major economies is a risk. Adding to these concerns has been the trajectory of producer prices – already declining in the Eurozone and China and showing very subdued growth elsewhere.
• Our global GDP forecasts do not, in isolation, point to a worldwide deflation risk. We expect growth at 2.8% this year and 3.2% next, little changed from last month.
• But the starting point for this growth matters, specifically the gap between actual and potential output last year. Even with reasonable growth, an initially large output gap would imply downward pressure on inflation over the next two years.
• Unfortunately, the size of the output gap is very uncertain. There is a wide range of estimates for the major economies, especially Japan. Part of the problem is that it is hard to know how much potential output was (or was not) permanently lost during the global financial crisis and recession.
• Assuming substantial permanent losses, output gaps might be relatively modest now, but a more optimistic view of the supply side of the economy would suggest output gaps could be quite large – and arguably this fits better with the recent evidence from inflation.
• Overall, while we see a genuine risk of deflation in the Eurozone (with around a 15% probability) we are more upbeat about the other major economies, where growth in the broad money supply and nominal GDP do not seem to be signaling deflation risks.
• But the difficulty of measuring ‘slack’ in the economy for us underlines the case for central banks to err on the side of caution when setting monetary policy, and either not tightening too soon or easing further. This month we have built in a further ECB rate cut to our Eurozone forecast. In Japan, we have revised down growth for 2014–15 with recent data strengthening the case for additional monetary easing this year.

     

The monetary policy dilemma: Will interest rates have to rise?

UK interest rates are now at their lowest level for more than two decades, and the government is hoping that interest rates can be kept at a low and sustainable level comparable to the 1960s. Indeed, some commentators are calling for still lower interest rates to offset the risk that the £12bn tax increases and cuts in government spending that will come into effect in the next financial year will lead to stagnant consumer spending and a stalled recovery. Against this must be weighed the risk that the recent very good run of inflation figures will prove temporary. Both headline and underlying inflation will be pushed up by indirect tax increases and there is the possibility that wages will follow too, as employees seek to maintain their living standards in a tightening labour market. That risk would point to a much more cautious monetary policy stance and the possibility that the government may need to raise rates from their present level if it is to achieve its inflation objective. The Chancellor faces a clear dilemma. In this Viewpoint, we assess the evidence available to guide him in his decisions and draw out the implications for the future path of interest rates.     

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     

Forecast Summary

The recovery that we forecast in February remains intact, though its composition is shifting between external and domestic demand. As we reported in International Economic Outlook earlier this month, the recession in Europe is intensifying so that, even with the devaluation-induced improvement in competitiveness, exports are being held back The weaker world outlook is the main factor behind a lower growth forecast next year. For 1993, however, we are continuing to forecast growth of 11/2 per cent, principally on the basis of more buoyant consumer spending. But the boost from consumption, while welcome in the first stage of recovery, is short-lived since the higher taxes already announced for next year hold back the growth of disposable incomes. Again this is desirable for the share of consumption, private and public, in GDP has been rising steadily and needs to be reversed in order to devote resources to reducing the two deficits: the PSBR and the trade gap. Over the forecast as a whole it is exports and investment which drive demand, not consumption. Underlying inflation has fallen below 3 per cent for the first time in twenty years, but it is now at its cyclical low point. We expect some increase in inflation from now on, though the Government's 1–4 per cent target is not likely to be breached this year. Next year and beyond, however, without more action on the budget deficit or a sharper increase in interest rates than we are assuming, inflation is forecast to settle in the 4–5 per cent range. Unemployment has fallen in recent months but the underlying trend remains upwards. We expect the three million level to be reached in the second half of the year.     

THE BUDGET

Mr Clarke's first unified budget is politically highly astute. He has skilfully defused the household fuel VAT row. As we predicted in the October Economic Outlook, he has taken advantage of lower inflation and the public pay freeze to cut public spending with tough curbs on social security. This, together with the absence of measures against the pensions industry, has pleased the markets. But it will prove hard, though not impossible, to hit the new public spending targets beyond next year, particularly if inflation picks up. The further reduction in mortgage tax relief, the modest extension of the tax base, the action on tax avoidance and the introduction of road charges all make good economic sense, though the absence of measures to give the Bank of England more freedom for manoeuvre in monetary policy is disappointing. There is still the risk that the large tax increases on consumers bequeathed by Mr Lamont will slow recovery in 1994, but overall this is a budget that is good for the economy and good for Mr Clarke. It paves the way for further interest rate cuts of ½-1%. In this forecast release we consider the details of the Budget, dissect the Treasury forecast, and consider the plausibility of the spending targets, especially in later years.     

Forecast Summary

The lower exchange rate offers UK industry a remarkable competitive advantage in world markets which, we believe, will be expanding rapidly over the next two years. As domestic demand is also likely to be strong in the run-up to the General Election, output is forecast to rise 3 per cent both next year and in 1988. But, even so, the short-term supply response is not expected to be sufficient to prevent the current account from recording a large deficit next year. Excess demand pressures also point to a higher rate of inflation from now on. We forecast a steady increase in inflation to 3¾ Aper cent by the end of next year and a peak of 4½ per cent in late 1988.     

Forecast Summary

Output fell in the first quarter of the year but we attribute the fall largely to the severe winter and expect the recovery of output, which began twelve months ago, to resume in the second quarter. We now expect output to grow by 1 per cent this year with more rapid growth in 1983 and beyond. We expect consumer price inflation to fall as low as 7 per cent during the next year and to rise thereafter, reaching double figures by the end of 1984.     

UK INFLATION: DOWN BUT NOT OUT

The release of the December retail prices index showed a rise in both the headline and the underling rate of inflation. That was not altogether unexpected with higher fuel and tobacco duties feeding through from the Budget. But it provides a reminder that inflation can go up as well as down. Looking ahead, inflation can go up as well as down. Looking ahead, inflation will be subject to conflicting pressures over the remainder of this year. Worldwide, inflationary pressures are weak. But, on the domestic scene, a Mortgage rate cuts which have helped to bring down the headline rate of retail price inflation will be less helpful. Indirect tax increases will push up the RPI directly. And employees may look for some compensation for direct tax increases in the next pay round. This assessment looks at the likely impact of these forces on inflation and the future course of interest rates.     

The Narrow Band Option for Mr. Lamont

The dilemma facing Mr. Lamont as he prepares his first Budget is the conflict between the need to keep interest rates high to maintain the commitment to sterling's ERM band and the wish to reduce interest rates to ease the severe recession in the domestic economy. In large part, this conflict is intrinsic to the government's aim to bring down UK inflation to German levels through membership of the ERM: the process of reducing inflation is always painful and costly in terms of lost output and higher unemployment. But the dilemma is made worse by the uncertainties over future policy direction, reflected in the differential between UK and German interest rates. German monetary policy is set to remain tight to hold in check the inflationary pressures that might otherwise arise from German unification. Against this background success in reducing UK interest rates will depend on the government's success in establishing the credibility of its anti-inflation policy and of its ERM commitment. An expansionary Budget aimed at easing the recession would undermine this credibility, and remove the scope for additional interest rate reductions. An abandonment of the ERM commitment would signal the accommodation of inflation, and condemn the UK to continuing high inflation and interest rates. We argue in this Viewpoint that the best course open to the Chancellor is to adopt a broadly neutral Budget stance, and to strengthen the ERM commitment by moving to a narrow band for sterling within the ERM. This should enable the Chancellor to reduce UK interest rates again at around the time of the Budget and lay the basis for further subsequent cuts.     

The MPC is on the verge,but a hike would be a mistake

• ? In light of the MPC's recent signalling, we now think that November's meeting will deliver a 25 basis points rise in Bank Rate. But the case for tighter monetary policy is weak even by the Committee's own criteria. This article sets out six reasons why we think that the MPC is on the verge of making an error.
• ? A chorus of hawkish comments from MPC members suggests that the Committee's next meeting on 2 November will announce a rise in Bank Rate, a 10‐year first. Granted, the MPC has ‘cried wolf’ before. But this time around the rhetoric has been much stronger. And the Committee has set the bar for a hike very low. Moreover, with inflation likely to peak soon and then decline through 2018, November would offer a good opportunity, presentationally at least, to go for a hike.
• ? But caution should temper the Committee. The MPC cites “a continued erosion of slack and a gradual rise in underlying inflationary pressure ” in support of its view. However, while the unemployment rate has fallen below the Bank's ‘equilibrium’ estimate, the Bank has history in being compelled to progressively cut that estimate. With the jobless rate still well above post‐war lows and worker power cowed, joblessness could fall further without threatening inflation.
• ? Meanwhile, the rise in underlying inflationary pressure that should follow from diminishing slack is absent. The MPC's claim that pay growth is picking up is tenuous and conflicts with recent survey evidence from the Bank's own regional Agents. In any case, the idea that faster pay growth threatens higher inflation has surprisingly weak foundations.
• ? Admittedly, a small rate rise, in itself, would slow growth only modestly. But the message sent by such an action risks pushing the economy further into a low growth expectations trap. And the Bank has alternative tools for dealing with the adverse side‐effects of ultra‐low rates. A rate rise in November would be a mistake.

     

The London Business School with Gower Publishing

The Autumn Statement updated the government's spending plans and its forecast from those announced in the Budget in March. On both counts there is very little difference between the Treasury view and our own forecast released in October. The Treasury supports our projection that output and demand will decelerate in 1989, that inflation will peak in the first half of the year at about 7 per cent and fall back to 5 per cent by the end of the year and that the deficit on the current account of the balance of payments will narrow only marginally over the next 12 months. On public spending in 1989–90, our October forecast was close to the unchanged official figures. It was clear to us - though not to most City commentators - that savings on unemployment benefit, debt interest and elsewhere would enable greater spending on programmes within an unchanged planning total. In later years the government has upped its expenditure plans from those announced a year ago, as we had assumed it would. As a result, the Autumn Statement projects significant increases in real public spending from now on. We show that, under a more appropriate inflation forecast, public spending rises nearly 2 per cent next year but falls back in 1990–92. Finally we argue that, unless the Chancellor decides to run an even larger PSDR (public sector debt repayment) than the £12bn built into our forecast - and the Autumn Statement forecast assumes a PSDR in 1989–90 similar to the expected outturn in 1988–9 of £10bn - the scope for tax cuts remains intact.     

THE POUND AND THE PUNT REVISITED

Whereas the pound has remained outside the EMS for the last ten years, the Irish punt has been a fully participating member since the inception of the EMS in March 1979. As such the punt experienced the depreciation of the EMS bloc against the pound in 1980-1 and, largely because of this, it suffered from a higher rate of inflation in the first half of the 1980s. But against a background of greater intra-EMS stability, Irish inflation has fallen steadily. It is now closer to German inflation than at any time in the last twenty years and in the nearly three years since the last EMS realignment, has been well below inflation in the UK. At the same time output in Ireland has advanced steadily and the trade balance has moved into surplus. The Irish experience has therefore paralleled that of the EMS as a whole. After a shaky start, the EMS has proved to be a powerful force for convergence and by switching from a fixed link to the pound to one against the DM, the Irish economy is being transformed into a relatively low inflation economy. The contrast with the pound panty period is marked. It is different not to conclude that the UK' recent economic performance, particularly on inflation, would have been significantly improved if it too had chosen the route of full EMS membership.     

WORLD OUTLOOK

The strength of US domestic demand is exerting a very strong pull on the world economy. Japan in particular is benefiting from soaring export demand, but the effects on European exports have been offset by weak domestic demand and, in the case of West Germany and the UK, by damaging industrial disputes which have interrupted supply. Over the next 12 months we expect the US economy to slow down under the weight of the financial and external balance pressures, which two years of very rapid but unbalanced growth have built up. For the world economy, however, we expect the slowdown in the US to be counterbalanced by expanding domestic demand in Europe and Japan, especially if a lower dollar permits reductions in interest rates. We forecast world output growth of about 3 per cent next year, well below the near-5 per cent projected for 1984 - the cyclical peak. By the second half of 1985 the world recovery will be three years old and we expect a pause in the growth of output. Against a background of stable monetary growth we expect world inflation in the 5–6 per cent range over the medium term. This is consistent with some increase in US inflation, low and stable inflation in Japan and West Germany and further progress in reducing inflation in countries such as France and Italy. Our forecast is based on the assumption that the dollar falls next year. If it does not fail we believe there is a significant risk of slower growth.