I doubt a week has gone by since last summer during which I haven't seen some pundit or other trot out Walter Bagehot's dictum that in the event of a credit crunch, the central bank should lend freely at a penalty rate. More often than not, this is contrasted with the actions of the Federal Reserve, which seems to be lending freely at very low interest rates.
Ben Bernanke, in a speech today, addressed this criticism directly:
What are the terms at which the central bank should lend freely? Bagehot argues that "these loans should only be made at a very high rate of interest". Some modern commentators have rationalized Bagehot's dictum to lend at a high or "penalty" rate as a way to mitigate moral hazard--that is, to help maintain incentives for private-sector banks to provide for adequate liquidity in advance of any crisis. I will return to the issue of moral hazard later. But it is worth pointing out briefly that, in fact, the risk of moral hazard did not appear to be Bagehot's principal motivation for recommending a high rate; rather, he saw it as a tool to dissuade unnecessary borrowing and thus to help protect the Bank of England's own finite store of liquid assets. Today, potential limitations on the central bank's lending capacity are not nearly so pressing an issue as in Bagehot's time, when the central bank's ability to provide liquidity was far more tenuous.
I'm no expert on Walter Bagehot, and in fact I admit I've never read Lombard Street. But I'll trust in Bernanke as an economic historian on this one, unless and until someone else makes a persuasive case that Bagehot's penalty rate really was designed to punish the feckless rather than just to preserve the Bank of England's limited liquidity."
October 28th, 2008 at 9:41 am
An excellent post with good points. I simply want to address one point:
“That is that one country’s guarantees of its bank deposits have attracted deposits from neighbor countries without such guarantees. That has led to follow the leader reactions and a better understanding of the unintended consequences of well-meaning policies.”
For me, this is very important. Take this quote from Across The Curve:
“One trader said that the competition from the FDIC guarantee has been a real wet blanket for the entire sector and there is no active marginal buyer.”
And Brad Setser:
“Prior to Lehman, there was an almost unshakable faith that the senior creditors and counterparties of large, systemically important financial institutions would not face the risk of outright default,” notes Neil McLeish, analyst at Morgan Stanley.”
Much of the infrastructure of modern finance in effect rested on an expectation of a government backstop for the creditors of large financial institutions – a backstop that allowed a broad set of institutions to borrow short-term at low rates despite holding large quantities opaque and hard to value assets on their balance sheets.
That observation has a number of implications, not the least that the leverage – and resulting capacity for outsized profits — of some parts of the financial sector was made possible by the expectation that the government would protect the key creditors of the financial system from losses.
Lehman’s default shattered this implicit guarantee. The end result likely will be a series of explicit guarantees – and a rather significant government recapitalization of the financial sector.”
The importance of guarantees, both implicit and explicit, has not been well examined. I believe that the system of implicit and explicit government guarantees is the most important point in this crisis, although there is a lot more to it. When Lehman wasn’t allowed government help, I believe that markets and investors panicked at the thought that they would actually be on their own, and had no real plans to deal with the problems without the government’s help, including the Fed. I simply believe that the massive amounts of risk taken by banks and other investors wouldn’t have occurred without an assumption of government intervention and help. This also explains some of the movements of cash once the crisis began. Once full government intervention was apparent, the crisis began to be addressed in earnest.
As you point out, on the other hand, FDIC insurance and the Fed and government spending are important in keeping a really serious downturn from occurring. So what to do?
I would recommend what I call Bagehot’s Principle’s:
If the B of E exists, it will be the lender of last resort, and you need to figure that into your analysis. Consequently, you need to determine policies that make such a last resort unlikely. Here’s a view points:
Regulation or supervision that advocates transparency and capital requirements on transactions.
Real moral hazard for banks, say, long before a crisis can occur.
Onerous terms in the case of a crisis and government help is needed.
There might well be others. But in this crisis, we had:
Poor regulation or supervision
No real moral hazard until the crisis
Far too lenient of terms, e.g., TARP
Even if I’m wrong about all of this, the importance of investing based on implicit and explicit guarantees by government needs to be examined, and, going forward, the terms and conditions of government intervention need to be spelled out.
Finally, since the taxpayer is the ultimate guarantor of these guarantees, it would not be amiss for taxpayers to demand a system that limits risk and forces a more conservative investment strategy on the market. Whether that is wise or unwise for growth is a good question, but to the extent that taxpayers are the ultimate guarantors, surely they should have some say in the conditions that could lead to their being called upon to produce large amounts of money.