Isabel Schnabel: COVID-19 and monetary policy: Reinforcing prevailing challenges
SPEECHCOVID-19 and monetary policy: Reinforcing prevailing challengesSpeech by Isabel Schnabel, Member of the Executive Board of the ECB, at The Bank of Finland Monetary Policy webinar: New Challenges to Monetary Policy StrategiesNine months into one of the most severe crises since World War II, we are still in the early stages of understanding the pandemics full ramifications.
SPEECH
COVID-19 and monetary policy: Reinforcing prevailing challenges
Speech by Isabel Schnabel, Member of the Executive Board of the ECB, at The Bank of Finland Monetary Policy webinar: New Challenges to Monetary Policy Strategies
- Nine months into one of the most severe crises since World War II, we are still in the early stages of understanding the pandemics full ramifications.
- Some sectors of our economies may never return to their previous size.
- Central banks may have to change how they pursue their mandates in the face of evolving consumer preferences and changing technologies.
- Predicting the direction and scope of these shifts for monetary policy is inherently difficult.
- At the ECB, we are doing this as part of our ongoing monetary policy strategy review.
COVID-19 and risks to price stability
- Let me explain each of these challenges in turn, starting with the meaning of price stability in times of low inflation.
- In 2003, when the Governing Council conducted the last review of its monetary policy strategy, it defined price stability as being consistent with consumer price inflation of below, but close to, 2% over the medium term.
- It agreed on this definition after a long period in which too high rather than too low inflation was the main predicament central banks were facing.
- Over the past few years, however, inflation has fallen short of our aim.
- Globalisation, for example, together with significant advances in the way manufactured goods are produced, has made many consumer goods cheaper over time.
- An economy paralysed by the pandemic has pushed underlying inflation the rate of price change of less volatile goods and services to a new historical low of 0.2% in October (see slide 2).
- Some of these price developments may prove temporary as the economy recovers from the crisis.
- [3] A longer life expectancy can induce people to save more to smooth consumption over a longer period of time.
- The parallel decline in trend productivity growth since the 1970s is likely to have added to price stagnation.
- Higher output per hour is a necessary precondition for higher sustainable wages, incomes and, ultimately, prices.
- But they can, and should, make sure that the operationalisation of their mandates the way they define and pursue price stability leaves no doubt that too low inflation is as much a concern to society as too high inflation.
- Central banks can cater for such risks in their monetary policy frameworks by acting with the same determination to downward and upward deviations from their inflation aims.
- This is why we are already today stressing our commitment to symmetry in our introductory statements summarising our monetary policy decisions.
The effectiveness of monetary policy in a low rate environment
- When the pandemic broke out in late February, we honoured this commitment by reacting forcefully to the rapidly emerging downside risks to price stability.
- The pandemic emergency purchase programme, or PEPP, has been at the heart of our policy response.
- [4] By stabilising market conditions at a time of exceptional uncertainty and demand for safety, the PEPP acted as an important circuit breaker that stopped the pandemic from turning into a full-blown financial crisis (see slide 4).
- Its strong impact on the economy was in line with a rich literature that suggests that monetary policy is most effective during periods of market turmoil or when the economy is in a severe recession.
- [5] In these circumstances, a tightening of financial conditions damages the economy more severely due to a negative multiplier effect (see left chart slide 5).
- Monetary policy that acts to offset a tightening in financial conditions is then highly effective.
- [6] It is likely that this state-contingent effectiveness of monetary policy is also at play in current times.
- Heightened uncertainty, in turn, is likely to weaken the willingness and ability of firms and households to take full advantage of historically loose financial conditions.
- [7] In these situations, monetary policy cannot unfold its full potential.
- An important question in this debate is whether and how monetary policy transmission changes in the vicinity of the effective lower bound, and how this might affect the interaction between monetary and fiscal policy also outside crisis times.
- At the core of these models is the Euler equation, or the IS curve, which provides two fundamental hypotheses on which policy transmission is built.
- The first is the interest rate hypothesis the belief that aggregate demand reacts linearly to changes in real interest rates.
Monetary policy and the interest rate hypothesis
- The interest rate hypothesis needs closer inspection on three grounds.
- [9] First, an emerging literature suggests that monetary policy transmission may not be linear in the level of the interest rate.
- [12] All else equal, the lower the pass-through of interest rate changes to bank deposit rates, the smaller the effects of monetary policy on aggregate demand.
- [15] Recent experience suggests that money illusion may not only change the nature of the interest rate channel, it may also expose central banks to widespread criticism.
- [16] Many people may be surprised to learn that negative real interest rates are not a new phenomenon.
The expectations hypothesis
- This bias in peoples perception brings me to the second hypothesis the expectations hypothesis.
- When policy space is limited, expectations become the main driver of monetary policy transmission in New Keynesian models.
- This is why many central bank scholars have been concerned about the gradual fall in market-based inflation expectations in recent years.
- First, a large part of the fall in market-based inflation expectations can be explained by a fall in the inflation risk premium (see left chart slide 7).
- Empirical evidence suggests that such indicators can often provide only little additional forward-looking information about inflation, even for a horizon of only one to two years ahead.
- [17] This raises the question of whether inflation expectations of households and firms may be more relevant than those of the market for shaping macroeconomic outcomes in line with the expectations hypothesis.
- [19] For example, in surveys a significant fraction of consumers report very high inflation expectations often in excess of 10%.
- But a limited understanding of actual levels does not necessarily stop people from acting on their beliefs.
- They find either no evidence of inflation expectations affecting consumption decisions or, more disturbingly, even suggest that higher inflation expectations could lower rather than raise consumption.
- [21] One interesting pattern that can help explain these findings is that rising inflation expectations often seem to go hand-in-hand with expectations of lower incomes and lower economic growth (see right chart slide 8).
- [22] These findings suggest that individuals are far from being as rational and forward-looking as our canonical models assume.
- [24] Bounded rationality may hence limit the efficacy of policies geared towards boosting inflation expectations, all the more so as new empirical evidence highlights that most households are very hesitant about adjusting their long-term inflation expectations in response to news.
- First, fiscal policy has become more important as a macroeconomic stabilisation tool, also once we leave the pandemic behind us.
- New research demonstrates that trust has a tangible impact on households inflation expectations.
- We know that people once inflation is low care more about employment, which is part of the US Federal Reserves mandate.
- But it is much harder to explain why inflation of 2% is better than 1%.
Low inflation and the design and calibration of policy instruments
- But what we learn from our analysis of how monetary policy transmission to the real economy may change in a low interest rate environment may ultimately also affect the way we calibrate and design our policy instruments, as well the horizon over which we want to achieve our inflation aim.
- The first is that monetary policy faces constraints.
- For example, we may not know precisely where the effective lower bound lies, but we know that there is one.
- Exempting a portion of excess reserves from negative rates, or rewarding lending activities at rates below our main policy rate, have been effective instruments in stretching our boundaries.
- The second challenge relates to the unintended side effects of monetary policy.
- Money illusion, for example, may push house prices increasingly away from fundamentals, despite real interest rates not being extraordinarily low.
- A third and complementary aspect is the horizon over which we want to bring inflation back to our aim.