Tag Archives: Eurozone

The Example of Europe: Austerity Programs Are Indeed Contractionary

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Europe GDP Growth, 2007Q4 to 2012Q3 - 1A.  Introduction

As the US comes closer to the so-called “fiscal cliff” (actually, more of a “fiscal slope”, as many have noted, as the impact will build over time rather than hit abruptly), it is worth reviewing the experience of Europe with the type of austerity programs that many are now pushing for the US.  The fiscal cliff we are now facing in the US is a manufactured crisis, created at the insistence of Republicans in August 2011 when they finally approved a higher statutory federal government debt limit.  It is a set of measures that will automatically enter into force on January 1, 2013, unless an agreement had been reached before then on actions to drastically cut back the federal deficit.

Unfortunately the debate underway in Washington is not on whether it is wise now (with the still weak economy) to enter into an austerity program of some sort.  Rather, it is solely on how severe that austerity program should be.  Any agreement will lead to a reduction in government spending and to increases in taxes, relative to what they would have been without the measures being negotiated.

The Republican argument is that adoption of such an austerity program is necessary for the US to be able to continue to grow.  Similar arguments were made in Europe.  Much of the continent has now adopted austerity programs, either willingly (such as in the UK) or due to pressure from other EU members and in particular pressure from the German government (such as in the cases of Greece, Spain, and Italy).  Our aim here is not to review in each case the reasons why the different countries may have chosen to adopt these austerity programs, which as noted was sometimes by policy choice and sometimes as a result of outside pressure.  Rather, the aim is to see what the impacts on growth have been since the programs were adopted (for whatever reason).

It is worth recalling what was said when these programs were first being pushed by prominent European authorities.  While critics forecast that such austerity programs would kill the incipient recoveries from the 2008/09 collapse (that started in the US and then spread globally), the European authorities in favor of these austerity programs argued that there was no need to worry.  They argued that such austerity programs would in fact be expansionary rather than contractionary.

The most prominent example is perhaps in the arguments made by the then President of the European Central Bank, Jean-Claude Trichet.  For example, in a June 2010 interview with La Repubblica (the largest circulation newspaper in Italy), Trichet said:

Trichet:  … As regards the economy, the idea that austerity measures could trigger stagnation is incorrect.

La Republicca:  Incorrect?

Trichet:  Yes. In fact, in these circumstances, everything that helps to increase the confidence of households, firms and investors in the sustainability of public finances is good for the consolidation of growth and job creation.  I firmly believe that in the current circumstances confidence-inspiring policies will foster and not hamper economic recovery, because confidence is the key factor today.

Trichet did not mis-speak.  He made a similar statement a month later in an interview with the newspaper Libération of France:

Libération:  Do the austerity plans announced amid monumental disarray by the Member States pose the risk of killing off the first green shoots of growth?

Trichet:  It is an error to think that fiscal austerity is a threat to growth and job creation. … Economies embarking on austerity policies that lend credibility to their fiscal policy strengthen confidence, growth and job creation.

But that has not been the case.

B.  The Larger European Economies, and Europe as a Whole

The figure above shows the paths of real GDP for the US, for several of the larger European economies, and for the Eurozone area as a whole, relative to the fourth quarter of 2007 (the peak before the start of the downturn in the US, and just before the start of the downturn in Europe, which for most was in the first quarter of 2008).  Some points to note:

  • The early path of the downturns were similar between the US and Europe, with a collapse in 2008 and into the first half of 2009, and then a start of a recovery with the stimulus packages adopted in the US as well as in much of Europe in 2009.
  • But then growth faltered in several of the European economies:  in mid-2010 in the UK, in early 2011 in the Netherlands, and more broadly in the 17 countries making up the Eurozone (who use the euro as their currency) in mid-2011.
  • The turnaround in the UK is particularly interesting for the US, as the UK (like the US) has its own currency and central bank, and can follow its own fiscal policy.  The abrupt end to the UK recovery in mid-2010 followed directly from new measures enacted by the then newly elected Conservative-led government (elected in May 2010, with initial emergency measures implemented from June, and a broader program implemented from October).  This was discussed in a previous blog post on this site.  Many of the Conservative government measures are similar to those being pushed by the Republicans in the US, with a sharp-cut back in government expenditures and in particular cuts in expenditures that provide support to the poor, accompanied by cuts in corporate taxes and more recently cuts in the top tax rates on the rich.
  • But while the Conservative Party argument for the UK austerity program was that this would lead to growth and to a reduction in government debt ratios, it is widely acknowledged now that the downturn that resulted from the austerity measures instead means that the program failed in terms of its originally stated objectives.  The austerity measures did not lead to an acceleration of growth, but rather to stagnation.  (And note that while there was an uptick in GDP by one percentage point in the third quarter of 2012, this has been attributed to the stimulus in spending resulting from the staging of the 2012 Olympics in London.  Indeed, the Bank of England in November, in its official forecast for the economy, noted GDP could fall back again in the fourth quarter of 2012 and downgraded its expected growth in 2013 to only 1%.)
  • Germany appears to be an exception, with a path followed for GDP above that of the US, although with a narrowing since mid-2011.  But while Germany has argued most strenuously and forcefully on the need for other European countries to follow austerity policies, its own internal government spending policies have been expansionary.  This is surprising given its rhetoric, and will be reviewed in a separate post on this blog which will be prepared after this one.  And it is also important to note that even with this performance, German GDP was only 2% higher in the third quarter of 2012 than it was in the first quarter of 2008, for a compound growth rate of only 0.4% per annum over four and a half years.
  • Each country has its own story, and it is not possible to review them all here.  But it is clear that for the Eurozone area as a whole, as well as for the UK but with the exception of Germany (which kept to expansionary government spending), the austerity programs launched in 2010 and 2011 have led to stagnation at best and falling output for most.

C.  Southern Europe and Ireland

There are two other groups of European economies where the response to austerity programs is of interest.  The first is the group of mostly Southern European economies were strict austerity policies were imposed as conditions of support programs from the IMF and the rest of Europe.  Funds were lent in these programs to those governments to enable them to continue to repay their creditors (who were in large part banks from Northern Europe).  This is the group affectionately known as the PIIGS, for Portugal, Italy, Ireland, Greece, and Spain.

The austerity measures led to collapses in output.  (A seasonally adjusted series is not available for Greece, but its path is clear.):

Europe GDP Growth, 2007Q4 to 2012Q3 - 2

D.  The Baltics

The other group of interest is the three small Baltic countries:  Estonia, Latvia, and Lithuania.  They were each severely impacted by the 2008/09 financial collapse, and each responded with stern austerity programs.  With strong growth over the last three years in each of them, these countries are sometimes held as examples of how austerity programs can lead to growth.  But this ignores the depth of the downturns that resulted from their austerity measures.  From the fourth quarter of 2007 to their troughs in 2009, GDP fell by 15% in Lithuania, by almost 20% in Estonia, and by an astounding 25% in Latvia.  There has been growth since then, but their current output remains far below where it was in 2007:

Europe GDP Growth, 2007Q4 to 2012Q3 - 3

Some have argued that the countries had no choice.  Estonia is a member of the Eurozone, and could not as a result depreciate an independent currency without leaving the Eurozone.  As in the other Eurozone members, monetary policy for Estonia is determined centrally by the European Central Bank, and fiscal policy is constrained by the extent to which the country will be able to borrow in the financial markets to finance any deficits.  But as noted above, the aim here is not to ascertain whether or not the countries had any policy choice on whether to follow some austerity program (or how severe that austerity program should have been), but rather what the impacts on growth have been of the austerity programs followed.  And the impacts have been negative.

Lithuania and Latvia had more scope in terms of policies they could have followed, since their currencies, while tied (by government decision) to some rate vis-a-vis the euro, are still independent currencies.  The governments could have chosen to devalue these currencies, which would have spurred their exports.  However, they decided not to, and instead decided to follow programs of severe fiscal austerity.  Output collapsed.

E.  Unemployment

The fall in output resulting from the austerity measures is bad enough by itself.  The loss in output is a loss in real resources, which could have been used for productive purposes.  But the tragedy is in fact much worse, as the pain from falling output is not spread evenly over the population, but rather is concentrated among a few.  In particular, those who lose their jobs and become unemployed see a drop not only in their current living standards, but for many also a permanent loss in their real standard of living, and for all a psychological burden as well.

It is therefore tragic to see how unemployment rates have risen, to almost 12% for the Eurozone as a whole, and to 26% in Spain and Greece following their particularly severe austerity programs:

European Unemployment Rates, Dec 2007 to Oct 2012F.  Conclusion

The austerity programs implemented in Europe killed the recoveries which were underway in 2009/2010, and led to double-dip recessions.  Unemployment had started to decline in the Eurozone area as a whole, but then rose following the new austerity programs, reaching a rate of almost 12% recently.  The US economy has so far fared better, with positive growth and a decline in the unemployment rate from a peak of 10.0% to a rate of 7.7% in November 2012.

But there is now the strong danger that if the negotiations under the threat of the fiscal cliff leads to new austerity measures, with expenditure cuts and tax increases starting in 2013 in order to reduce rapidly the federal fiscal deficit, that the consequences in the US will be similar to that which has been seen in Europe.

The Proposed European Balanced Budget Rules: “How to Create a Depression”

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In these days where conservative orthodoxy has gone so far to the extreme right, it is encouraging to see a prominent conservative economist point out what should be obvious:  that adoption of stringent fiscal rules for balanced budgets by Eurozone members, as are being emphatically pushed by Angela Merkel and other Eurozone leaders, could easily cause an economic contraction turn into an economic depression.

Professor Martin Feldstein of Harvard, a prominent establishment figure, has made this point in his posting yesterday on the Project Syndicate web-site here.  The argument is clear and easy to understand, and should be read in its entirety.  I have copied below some of the key sections.  And Professor Feldstein is not a liberal economist:  he was Chairman of the Council of Economic Advisers under President Reagan, was the long-time head of the National Bureau of Economic Research, and was a prominent adviser to President George W. Bush, including as a proponent of Bush’s plan to privatize Social Security.

While the point being made by Professor Feldstein should be obvious, it appears that Eurozone members will soon adopt such balanced budget rules, and some have already adopted variants.  Germany is pushing strongly, and the members are currently in no position to oppose what Germany wants.  Yet implementation of contractionary policies in an attempt to cut fiscal deficits caused by an economic contraction will put economies on a path to depression.  And similar rules are being pushed for the US by prominent Republicans and especially by Tea Party activists.

It is a formula for turning a downturn into a depression, as was done in the 1930s.

______________________________________________________

How to Create a Depression

2012-01-16

European political leaders may be about to agree to a fiscal plan which, if implemented, could push Europe into a major depression.

…

[With the adoption of the Euro] the only countercyclical policy available to France [or any Eurozone member] is fiscal: lower tax revenue and higher spending.

While that response implies a higher budget deficit, automatic fiscal stabilizers are particularly important now that the eurozone countries cannot use monetary policy to stabilize demand. Their lack of monetary tools, together with the absence of exchange-rate adjustment, might also justify some discretionary cyclical tax cuts and spending increases.

…

The European Union’s summit in Brussels in early December was intended to prevent such debt accumulation in the future. The heads of member states’ governments agreed in principle to limit future fiscal deficits by seeking constitutional changes in their countries that would ensure balanced budgets.

…

The most frightening recent development is a formal complaint by the European Central Bank that the proposed rules are not tough enough.  Jorg Asmussen, a key member of the ECB’s executive board, wrote to the negotiators that countries should be allowed to exceed the 0.5%-of-GDP limit for deficits only in times of “natural catastrophes and serious emergency situations” outside the control of governments.

If this language were adopted, it would eliminate automatic cyclical fiscal adjustments, which could easily lead to a downward spiral of demand and a serious depression.  If, for example, conditions in the rest of the world caused a decline in demand for French exports, output and employment in France would fall. That would reduce tax revenue and increase transfer payments, easily pushing the fiscal deficit over 0.5% of GDP.

If France must remove that cyclical deficit, it would have to raise taxes and cut spending. That would reduce demand even more, causing a further fall in revenue and a further increase in transfers – and thus a bigger fiscal deficit and calls for further fiscal tightening. It is not clear what would end this downward spiral of fiscal tightening and falling activity.

If implemented, this proposal could produce very high unemployment rates and no route to recovery – in short, a depression. …

The Eurozone Crisis: The Much Praised “Convergence” as a Cause

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Eurozone crisis, Eurozone and UK Government borrowing rates, 10 year yields, January 1993 to October 2011

The Eurozone crisis is complicated, and a mess.  Europe as a whole is probably already in an economic recession.  But one of the seeds for this crisis (there are several) can be found in what was seen then as the remarkable, and at the time much praised, “convergence” in government borrowing rates among the Eurozone members from the introduction of the Euro on January 1, 1999 (and Greece from its entry on January 1, 2001), until the Lehman Brothers collapse in September, 2008.

The graph shows how markets drove interest rates on government bonds to equality for Eurozone members, until the Lehman collapse in 2008.  It is really quite remarkable that the markets acted this way.  They treated the Government of Greece as if the probability it would default or otherwise reduce the value of the loans made to it (e.g. by an involuntary restructuring), were the same for it as for Germany (or any other Eurozone member).  Even if the markets thought that Germany would in the end always bail out any member otherwise unable to repay its debt, one would have thought that the markets would have at least viewed this as not 100% certain, and that they would in any case ultimately face some degree of loss even with a German bailout.  That the markets did not act this way shows how unbridled faith in markets acting rationally and fully informed is dogma, and is not supported by history.

The graph also shows the 10 year borrowing rate by the Government of the UK.  The UK has its own currency, and it must have been painful for it to see that the markets treated Eurozone members such as Greece and Ireland as better risks than the UK in the middle of the last decade.  I have included the UK in the above graph in part to show how tightly bound the borrowing rates were for the Eurozone members during this period. And despite a UK fiscal deficit which is now higher than all Eurozone members other than Greece (and in fact close to that of Greece, where the Greek fiscal deficit is projected to be 9.1% of GDP in 2011, vs. 8.8% projected for the UK), and public debt ratios similar to the EU average (and a third higher than that of Spain, for example), the UK 10-year borrowing rate is now almost the same as Germany’s (as of this writing on December 12, the 10 year UK rate was 2.10%, vs. 2.02% for Germany).  An independent currency helps.

The Eurozone crisis has reached the point that it has, threatening a renewed world-wide downturn and a possible break-up of the euro itself, because the traditional tools to manage a crisis are not there, due to the euro and the rules under which it was established.  The European Central Bank says it is not permitted to be a lender of last resort to Euro member governments, thus forgoing an important mechanism normally available to countries with a sovereign currency.  And as a member of the Eurozone, individual countries cannot devalue, where a devaluation could improve competitiveness and spur growth.  Many conservative economists have argued that putting nations is such straightjackets is the way to prosperity.  The Eurozone crisis shows that is simply not correct.

There are no good alternatives in what to do now.  The time for corrective actions should have come much earlier, including from the launch of the euro when the convergence in government borrowing rates was observed, despite the clear differences in capacity to service public debt among the Eurozone members.  But in coming up with a resolution to this crisis, one element will need to be that losses are taken by the lenders who had earlier treated all Eurozone governments as the same.  It was this failure of the market to differentiate across the Eurozone members that supported both profligate governments (such as Greece) and profligate private borrowers (such as banks in Spain and Ireland that  drove real estate bubbles), and more broadly financed at too low a price the trade imbalances that developed among the member countries.

Ensuring the lenders suffer such losses is not only morally justifiable (that is, all the costs should not be imposed Greece, Italy, Spain, and others, even if this would suffice, and it won’t), but also important to ensure another such crisis does not develop again in a few years.  Angela Merkel and Germany are trying instead to impose strict fiscal rules on public sector deficits and the accumulation of public debts, but it is unlikely that such blunt rules will suffice to cover the complexities of any real world situation the countries find themselves in.  Furthermore, such fiscal rules, if seriously applied, will limit the ability of governments to respond as they should to economic downturns, even recognizing that the rules in principle allow for some flexibility in such circumstances.

And by Germany insisting that banks and other lenders not take losses on the loans they made to the riskier countries (other than Greece), where such loans were made at rates that reflected an assumption of no risk, lenders might well feel that in other than extreme cases (like Greece) they will in the future again be bailed out.  While one should hesitate in relying solely on the markets, given their poor track record, the markets would function better if lenders were forced to take losses on their bad lending decisions.  That would then act as a check on excessive government borrowing in circumstances when such borrowing truly was excessive rather than a reasonable response to the real world situation the countries might find themselves in at some point in the future.  And such market discipline would function better than crude, one size fits all, fiscal rules that limit a government’s ability to respond appropriately to downturns.