Bringing in the helicopters
It’s here where the call comes in for metaphorical helicopters to bypass the banking system and jettison bundles of cash that people would pick up gratefully and spend on goods and services, so reviving a stagnant economy (stagnant for want of enough demand, not for want of potential output and employment that is the usual economic problem).
But will the helicopters come in the form imagined by Friedman, Bernanke and others? In reality they are likely to take a different form. They will have to be ordered by governments and budgeted for in Congresses or Parliaments. Central banks can buy assets in the financial markets and directly from banks. They cannot order up government spending that they can help fund. That is the job of governments, who decide how much to spend and how to fund it. Governments can fund spending by taxing their citizenry, which means they (the citizens) will have less to spend. This is never very popular with voters. They can also fund government spending by genuine borrowing in the market place – competing with other potential borrowers – crowding them out by offering market-related interest rates and other terms to lenders. Or they can fund their expenditure by calling on the central bank for loans that, as a government agency, they cannot easily refuse to do.
In taking up the securities offered to them by the government, the central bank credits the deposit accounts of the government and its agencies with the central bank to the same (nominal) value as the debt offered in exchange. Both the assets and deposit liabilities of the central bank then increase by the same sum, as the extra debt is bought by the central banks and the government deposit credited. As the government agencies write cheques on their deposit account – or do the EFTs on them – the government deposit runs down and the deposits of the private banks with the central bank run up. In this way, the supply of cash held by the private sector increases, just as it does in the case of QE.
And the private banks and their customers will have the same choice about what to do with the extra cash held on their own balance sheets. Spend more, lend more or pay back debts or hold the extra cash, as they have largely been doing.
But there is an important difference when the money is created to fund extra government spending. Spending by government on goods, services or labour (or perhaps welfare grants) will have increased, so directly adding to aggregate spending. By spending more, the revenues of business suppliers and the incomes of households will have risen with their extra money balances received for their services or benefits. This makes it more likely that they will spend at least some of their extra income, generating what is known in economics as a multiplier effect. This is why spending by government can be highly inflationary, as it was in the Weimar Republic of Germany after World War 1 or as it was in Zimbabwe not so long ago or as it is now driving prices higher in Venezuela.
But the current danger in the West is deflation, the result of too little, rather than too much spending. Inflation seems very far away, as revealed by the very low or even negative interest rates offered by a number of governments (in the form of negative yields on government debt) to willing lenders for extended periods of time. For some governments, issuing debt – at negative interest rates that produces an income for the government – is cheaper than issuing cash, that is the non-interest bearing debt of the government and usually the cheapest method for funding its expenditure. How can they resist the temptation to generate government income by issuing more debt for an extended period of time? Not easily, we would suggest.
The continued weakness of developed economies suffering from a lack of demand, despite low interest rates, calls for money and debt – or money creation by governments. The call for less austerity or more government spending relative to taxes collected, is being heard in Japan. It is a voice being sounded loud and clear in post-Brexit Britain. The Italians are very anxious to use government money to revive their own failed banking system. The Germans, with their own particular Weimar inflation demons, will however resist the idea of central banks directly funding governments, but for how long? Hillary Clinton promises spending on infrastructure. Donald Trump worries little about debt of all kinds – including his own (for now, as far as we can tell).
How long can weak economies co-exist with very low interest rates and abundant supplies of cash? It will not take helicopters but unhappy voters to stimulate more government spending, funded with cheap debt or cash. And the voters appear particularly restless on both sides of the Atlantic and, for that matter, the Mediterranean. The next few years promise to be intriguing ones for the governments and electorates of these countries.
Meanwhile in SA – a different world
At this point it is worthwhile to compare and contrast policy actions in the developed world with those in SA. The Reserve Bank (the Bank) has not practised QE. By contrast, SA banks, rather than being inundated with cash and excess reserves, have been kept consistently short of cash in support of the interest rate settings of the Bank. SA banks borrow cash from the Bank rather than hold excess cash reserves with it.
SA banks do not therefore hold reserves in the form of deposits at the central bank in excess of the reserves they are required to hold. As may be seen in the figures below, by contrast with their developed world counterparts, the SA banks are kept short of cash through liquidity absorbing operations by the Bank and, more importantly, by the SA National Treasury.
Also to be noted is the liquidity provided consistently to the banking system by the Bank in the form of repurchases of assets from them as well as loans against reserve deposits. Rather than holding excess reserves over required cash reserves, the SA banks consistently borrow cash from the Bank to satisfy their regulated liquidity requirements.
It is these loans to the banking system that give the Bank its full authority over short-term interest rates. The repo rate, at which it makes cash available to the banks, is the lowest rate in the money market from which all other short-term interest rates take their cue. Keeping the banks short of cash ensures that changes in the policy-determined repo rate is made effective in the money market – that is, all other rates will automatically follow the repo rate because the banks are kept short of cash and borrow reserves rather than hold excess cash reserves.
In the US, the Fed pays interest on the deposit reserves banks hold with the Fed. The European Central Bank (ECB), for its part, applies a negative rate to the reserves banks hold with it. In other words, Eurozone banks have to pay rather than receive interest on the balances they keep with the ECB as an inducement to them to lend rather than hoard the cash they receive via QE.
The cash reserves the SA banks acquire originate mostly through the balance of payments flows. Notice in the figure below that the assets of the Bank are almost entirely foreign assets. Direct holdings of government securities are minimal, as reflected on the Bank balance sheet. When the balance of payments (BOP) flows are positive, the Bank can add to its foreign assets and when they are negative, run them down. The Bank buys foreign exchange in the currency market from the private banks (and credits their deposit accounts with the Bank accordingly) or sells foreign exchange to them and then calls on their deposit accounts with the Bank for payment.
Thus, when the BOP flows are favourable, the Bank may be adding to its foreign assets and so to the foreign exchange reserves of SA via generally anonymous operations in the foreign exchange market. In so doing, it is acting as a residual buyer or seller of foreign exchange and, as such, will be preventing exchange rate changes from balancing the supply and demand. With a fully flexible exchange rate, no changes in foreign exchange reserves would be observed, only equilibrating movements in exchange rates. The exchange rate will strengthen or weaken to equalise supply and demand for US dollars or other currencies on any one trading day without causing any change in the supply of cash, that is in the sum of bank deposits held with the Bank.
The foreign assets on the Bank balance sheet have however increased consistently over the years as we show in the figure below. Hence influence of the BOP on the money base (on the cash reserves of the banks) has been a strongly positive one.
Without intervention in the money market, these purchases of foreign exchange by the Bank would automatically lead to an equal increase in the cash reserves of the banking system. Their deposits at the Bank would automatically reflect larger deposit balances as foreign exchange is acquired from them and their clients. This source of cash however has been offset by SA National Treasury operations in the money and securities markets.
To sterilise the potential increase in the money base of the system (defined as notes plus bank deposits at the central banks less required reserves) the Treasury issues more debt to the capital market. The debt is sold to the banks and their customers – they draw on their deposits to pay for the extra issues of debt – and the Treasury keeps the extra proceeds on its own government deposit account with the Bank. Provided these extra government deposits are held and not spent by the Treasury – as is the policy intention – the BOP effects on the money base (on bank deposits or reserves) will have been neutralised by increases in government deposits. (The money base only includes bank deposits with the Reserve Bank. Government deposits are not part of the money base.)
It is to be noted in the figure representing Reserve Bank Liabilities, how the Government Deposits with the Reserve Bank have grown as the Foreign Assets of the Bank have increased – extra liabilities for the Reserve Bank offsetting extra foreign assets held by the Bank. It is of interest to note that about half of the Treasury deposits at the Reserve Bank are denominated in foreign currencies.
Figure 7: SA Reserve Bank balance sheet: Assets