http://www.federalreserve.gov/newsevents/speech/bernanke20090414a.htm
SpeechChairman Ben S. Bernanke At the Morehouse College, Atlanta, GeorgiaApril 14, 2009 Four Questions
about the Financial CrisisI am pleased to have the privilege of speaking today to the students and
faculty of Morehouse College, the only all-male historically black institution
of higher learning in the United States. It is sufficient to note that Martin
Luther King, Jr., was a graduate of Morehouse. Yet a roster of distinguished
alumni that also includes former Atlanta Mayor Maynard Jackson, former U.S. Surgeon
General David Satcher, and filmmaker Spike Lee testifies to the success of your
stated mission of "producing academically superior, morally conscious
leaders for the conditions and issues of today."
My remarks today will focus on the ongoing turmoil in financial markets and
its consequence, the global economic recession. The financial crisis, the worst
since the Great Depression, has severely affected the cost and availability of
credit to both households and businesses. Credit is the lifeblood of market
economies, and the damage to our economy resulting from the constraints on the
flow of credit has already been extensive. With recent job losses exceeding
half a million per month, this year's college graduates are facing the toughest
labor market in 25 years. In the communities in which you and I grew up, many
families are trying to cope with lost employment and depleted savings or are
facing foreclosure on their homes. Firms have shut factories and cancelled
construction projects. States and municipalities are scrambling to find the
funding to provide critical services. And although we naturally tend to be most
aware of conditions in the United States, we should not overlook the impact
that the crisis is having virtually everywhere in the world, particularly on
many citizens of countries that struggle economically even when the global
economy is doing well.
In the midst of all of these concerns, many Americans have recently
celebrated Easter or Passover. As you may know, a highlight of the traditional Passover
meal occurs when the youngest child asks four questions, the answers to which
tell the history of the Jews when they were slaves in Egypt and during their
exodus to the Promised Land. In the spirit of the holiday, today I will pose
and answer four important questions about the financial crisis. Of course, my
answers will have to be brief, but we will have more time for additional
questions at the conclusion of my prepared remarks.
How Did We Get Here?The first question I would like to address is: How did we get here? What caused
our financial and economic system to break down to the extent it has? Not
surprisingly, the answer to this question is complex, and experts disagree on
how much weight to give various explanations. In my view, however, to tell the
story fully--and, in particular, to understand its international scope--we need
to consider how global patterns of saving and investment have evolved over the
past decade or more, and how those changes affected credit markets in the
United States and some other countries.
At the most basic level, the role of banks and other financial institutions
is to take the savings generated by households and businesses and put them to
use by making loans and investments. For example, financial institutions use
the funds they receive from savers to provide loans that help families buy
homes or allow businesses to finance inventories and payrolls. Financial
markets, such as the stock and bond markets, perform a similar function, as
when a firm raises funds for a new factory by selling a bond directly to
investors. When the financial system is working as it should, it allocates
funds both prudently (that is, with proper attention to risk) and efficiently
(to the most productive uses).
Importantly, in our global financial system, saving need not be generated in
the country in which it is put to work but can come from foreign as well as
domestic sources. In the past 10 to 15 years, the United States and some other
industrial countries have been the recipients of a great deal of foreign
saving. Much of this foreign saving came from fast-growing emerging market
countries in Asia and other places where consumption has lagged behind rising
incomes, as well as from oil-exporting nations that could not profitably invest
all their revenue at home and thus looked abroad for investment opportunities.
Indeed, the net inflow of foreign saving to the United States, which was about
1-1/2 percent of our national output in 1995, reached about 6 percent of
national output in 2006, an amount equal to about $825 billion in today's
dollars.
Saving inflows from abroad can be beneficial if the country that receives
those inflows invests them well. Unfortunately, that was not always the case in
the United States and some other countries. Financial institutions reacted to
the surplus of available funds by competing aggressively for borrowers, and, in
the years leading up to the crisis, credit to both households and businesses
became relatively cheap and easy to obtain. One important consequence was a
housing boom in the United States, a boom that was fueled in large part by a
rapid expansion of mortgage lending. Unfortunately, much of this lending was
poorly done, involving, for example, little or no down payment by the borrower
or insufficient consideration by the lender of the borrower's ability to make
the monthly payments. Lenders may have become careless because they, like many
people at the time, expected that house prices would continue to rise--thereby
allowing borrowers to build up equity in their homes--and that credit would
remain easily available, so that borrowers would be able to refinance if
necessary. Regulators did not do enough to prevent poor lending, in part
because many of the worst loans were made by firms subject to little or no
federal regulation.
Mortgage markets were not the only ones caught up in the credit boom. The
large flows of global saving into the United States drove down the returns
available on many traditional long-term investments, such as Treasury bonds,
leading investors to search for alternatives. To satisfy the enormous demand
for investments both perceived as safe and promising higher returns, the
financial industry designed securities that combined many individual loans in
complex, hard-to-understand ways. These new securities later proved to involve
substantial risks--risks that neither the investors nor the firms that designed
the securities adequately understood at the outset.
The credit boom began to unravel in early 2007 when problems surfaced with
subprime mortgages--mortgages offered to less-creditworthy borrowers--and house
prices in parts of the country began to fall. Mortgage delinquencies and
defaults rose, and the downturn in house prices intensified, trends that
continue today. Investors, stunned by losses on assets they had believed to be
safe, began to pull back from a wide range of credit markets, and financial
institutions--reeling from severe losses on mortgages and other loans--cut back
their lending. The crisis deepened last September, when the failure or
near-failure of several major financial firms caused many financial and credit
markets to freeze up. Stock prices fell sharply as investors lost confidence in
the financial sector and became gloomy about economic prospects. Declining stock
values, a teetering financial system, and difficulties in obtaining credit
triggered a remarkably rapid and deep contraction in global economic activity
and employment, a contraction that has persisted through the first months of
2009. Both the ongoing financial crisis and economic contraction have posed
major challenges to economic policymakers.
What Is the Fed Doing to Address the Situation?Those challenges bring me to my second question: What has the Federal Reserve
been doing to address the economic and financial crisis?
The Fed's mandate from the Congress is to promote maximum sustainable
employment and stable prices. In addition, the Fed is expected to contribute to
financial stability by acting to contain financial disruptions and prevent
their spread outside of the financial sector. Thus, we have been serving as a
first responder to the crisis.
The Fed's basic policy tool for influencing economic activity and inflation
is its ability to control very short-term interest rates--specifically, the
federal funds rate, which is the rate that banks pay each other for overnight
loans. Lower interest rates can be used to stimulate private-sector borrowing
and spending at times like the present when the economy is suffering from a
lack of demand. In September 2007, shortly after the turbulence in financial
markets began and signs of economic weakness started to appear, the Federal
Open Market Committee (FOMC), the body that determines the Federal Reserve's
monetary policy, began to aggressively reduce the federal funds rate. By the
spring of 2008, we had cut that interest rate from 5-1/4 percent to 2 percent,
a highly proactive policy that helped to cushion the economy from some of the
effects of the financial turmoil. But, as I mentioned a moment ago, the intensification
of the financial crisis in the fall of 2008 led to a further significant
deterioration in the economic outlook. The FOMC responded with additional
interest rate cuts, and since December, our policy interest rate has been
essentially zero. In addition, the FOMC has made clear that it expects economic
conditions to warrant holding the federal funds rate low for an extended
period.
However, given the ongoing problems in credit markets, conventional monetary
policy alone is not adequate to provide all the support that the economy needs.
The Fed has therefore taken a number of steps to help the economy by unclogging
the flow of credit to households and businesses. In doing so, we have
demonstrated that the Fed's toolkit remains potent, even though the federal
funds rate is close to zero and thus cannot be reduced further.
We have taken a wide range of actions to help restore the flow of credit, of
which I will only mention a few of the most important. One set of actions
involves making short-term loans to banks and other financial institutions.
Banks and other financial intermediaries normally make longer-term
commitments--such as residential mortgages and business loans--yet rely on
funding that may be relatively short-term, such as customer deposits that can
be withdrawn at any time. To have the confidence to commit to longer-term loans
and investments, banks must be sure that they will have ample access to funding
when necessary. To give this assurance to banks, the Federal Reserve has made
clear that it will provide short-term credit to sound financial institutions as
needed. Indeed, serving as a lender of last resort to financial institutions is
a method that central banks have used for centuries to try to calm financial
crises.
To underscore our commitment to providing short-term funding to banks when
they need it, we have lowered the interest rate we charge for short-term loans
and extended the term of the loans to up to three months. We have also begun to
auction funds to financial institutions, thereby allowing the interest rate
paid to depend on the level of demand. Importantly, this lending is extremely
safe from the point of view of both the Fed and the taxpayer. Not only is our
lending short-term and restricted to healthy institutions, but we require that
the borrowers pledge, as security, collateral whose value exceeds the amount we
are lending. The Fed's lending to financial institutions has helped to ease
conditions in a number of key financial markets, reduced important benchmark
interest rates (such as the London interbank offered rate, or Libor, to which
payments on some mortgages and other types of loans are tied), and increased
the willingness of banks to make credit available.
A second strategy the Fed has employed is to use targeted lending to help
free up critical credit markets outside of the banking system. A good example
of targeted lending is our efforts in the commercial paper market. Commercial
paper is a form of short-term debt issued by a variety of businesses to finance
their operations; paychecks and payments to suppliers can depend on it. Among
the largest investors in commercial paper are money market mutual funds. At the
peak of the crisis last fall, many people who had invested in money market
mutual funds lost confidence in those funds and withdrew their money; this loss
of funding forced money market mutual funds to reduce their own investments,
which in turn caused serious problems in the commercial paper market. Through a
series of lending programs, and in coordination with steps taken by the
Treasury, the Federal Reserve helped restore confidence in both money market
mutual funds and the commercial paper market. Over time, withdrawals from money
market mutual funds have been replaced by modest net inflows, and borrowers in
the commercial paper market have seen significant improvements in the cost and
availability of funding.
More recently, the Federal Reserve has also initiated a lending program,
with the cooperation of the Treasury, designed to free up the flow of credit to
households and small businesses. Among the forms of credit on which the program
is currently focused are auto loans, credit card loans, student loans, and
loans guaranteed by the Small Business Administration. We are currently
reviewing other types of credit for possible inclusion in this program. In all
cases, we will be taking the appropriate measures to minimize the risk of loss
to the Federal Reserve.
Restoring stability to the market for housing and home mortgages has been a
particular area of concern. To address this problem, the Fed has employed a
third type of policy tool--namely, buying securities in the open market. The
FOMC has approved purchases of well over $1 trillion this year of
mortgage-related securities guaranteed by the government-sponsored mortgage
companies, Fannie Mae and Freddie Mac. Buying mortgage-related securities helps
to drive down the interest rates that consumers pay on mortgages, and, indeed,
the rate on a traditional 30-year fixed-rate mortgage has recently fallen to less
than 5 percent, the lowest level since the 1940s. Certainly, the housing market
remains depressed, but lower interest rates and house prices are making houses
more affordable. For example, two years ago, when mortgage rates were higher
than 6percent, payments on a mortgage covering 80 percent of the cost of a
$215,000 home would have been more than $1,000 per month; today, the price of
that same house may have fallen to $170,000, and, at today's mortgage interest
rates, the monthly payment would be about $700. Lower mortgage rates are also
helping some homeowners refinance their mortgages to reduce their monthly
payments.
The Federal Reserve will continue to take the necessary steps to unclog the
credit markets and strengthen the economy. We will also continue to work
closely with other agencies, such as the Treasury and the Federal Deposit
Insurance Corporation (FDIC), each of which has also taken a variety of actions
to help stabilize financial markets, as well as with other central banks around
the world.
Does the Fed's Aggressive Response Risk Inflation Down the Road?The multifaceted policy response that I've described has been aggressive. I am
confident that such a proactive policy response is well justified by the
serious ongoing problems in financial markets and the economy. However, some
have raised the third question I will address: Could the Fed's aggressive
actions to stabilize the economy today lead to an inflation problem down the
road?
I mentioned earlier that the Fed's mandate from the Congress is to foster
price stability as well as maximum sustainable employment. The FOMC treats its
obligation to ensure price stability extremely seriously. Price stability
supports healthy economic growth, for example, by making it easier for
households and businesses to plan for the future. In practice, price stability
does not require that inflation be literally zero; indeed, although inflation
can certainly be too high, it can also be too low. Experience suggests that
inflation rates that are close to zero or even negative (corresponding to
deflation, or falling prices) can at times be associated with poor economic
performance. Cases in point include the United States in the 1930s and the more
recent experience of Japan. In their latest quarterly projections of the
economy, most members of the FOMC indicated that they would like to see an
annual inflation rate of about 2 percent in the longer term. Right now, because
of the weakness in economic conditions here and around the world, inflation has
been running less than that, and our best forecast is that inflation will
remain quite low for some time. Thus, the Fed's proactive policy approach is
not at all inconsistent with the goal of price stability in the medium term.
Although inflation seems set to be low for a while, the time will come when
the economy has begun to strengthen, financial markets are healing, and the
demand for goods and services, which is currently very weak, begins to increase
again. At that point, the liquidity that the Fed has put into the system could
begin to pose an inflationary threat unless the FOMC acts to remove some of
that liquidity and raise the federal funds rate. We have a number of effective
tools that will allow us to drain excess liquidity and begin to raise rates at
the appropriate time; that said, unwinding or scaling down some of our special
lending programs will almost certainly have to be part of our strategy for
reducing policy stimulus once the recovery is under way.
We are thinking carefully about these issues; indeed, they have occupied a
significant portion of recent FOMC meetings. I can assure you that monetary
policy makers are fully committed to acting as needed to withdraw on a timely
basis the extraordinary support now being provided to the economy, and we are confident
in our ability to do so. To be sure, decisions about when and how quickly to
proceed will require a careful balancing of the risk of withdrawing support
before the recovery is firmly established versus the risk of allowing inflation
to rise above its preferred level in the medium term. However, this delicate
balancing of risks is a challenge that central banks face in the early stages
of every economic recovery. I believe that we are well equipped to make those
judgments appropriately. In addition, when the time comes, our ability to
clearly communicate our policy goals and our assessment of the outlook will be
crucial to minimizing public uncertainty about our policy decisions.
Why Did the Fed and the Treasury Act to Prevent the Bankruptcy of Some
Major Financial Firms?The final question is as difficult as it is important: Why did the Fed and the
Treasury act to prevent the bankruptcy of some major financial firms, such as
the investment bank Bear Stearns and the insurance company American
International Group, or AIG? We must answer that question not only because the
decisions have been controversial, but also because it bears on the steps we
need to take as a country if we are to avert a repetition of the crisis.
As a general rule, my strong preference is that any firm that cannot meet
its obligations should bear the consequences of the marketplace. But recent
circumstances have been truly extraordinary. Consider the situation on
September 16 of last year, when the insurance conglomerate AIG faced pressures
that threatened to force it imminently into bankruptcy. At that time, the
strains in the global financial system were unprecedented and extreme, and the
confidence of financial market participants in the system was rapidly eroding.
The investment bank Lehman Brothers had filed for bankruptcy the day before,
and the mortgage giants Fannie Mae and Freddie Mac, after suffering losses that
threatened their solvency, had effectively been taken over by the government
just two weeks earlier. As waves of panic and fear washed over the markets, the
Fed and the Treasury became very concerned about the stability of a number of
other major financial firms.
Large, complex financial institutions tend to be highly interconnected with
other firms and markets, and AIG was more interconnected than most. For
example, AIG had insured many billions of dollars of loans and securities held
by banks around the world, and its failure would have rendered those insurance
contracts worthless, imposing large losses on the global banking system. In
addition, banks had extended more than $50 billion in credit to the company,
much of which would have been lost. Many other serious consequences would have
followed from a default by AIG: Insurance policyholders would have faced
considerable uncertainty about the status of their policies; state and local
governments, which had lent more than $10 billion to AIG, would have suffered
losses; workers whose 401(k) plans had purchased $40 billion of insurance from
AIG against the risk of loss would have seen that insurance disappear; and
holders of AIG's substantial quantities of commercial paper would have also
borne serious losses.
But much more important, the disorderly failure of AIG would have put at
risk not only the company's own customers and creditors but the entire global
financial system. Historical experience shows that, once begun, a financial
panic can spread rapidly and unpredictably; indeed, the failure of Lehman
Brothers a day earlier, which the Fed and the Treasury unsuccessfully tried to
prevent, resulted in the freezing up of a wide range of credit markets, with
extremely serious consequences for the world economy. The financial and
economic risks posed by a collapse of AIG would have been at least as great as
those created by the demise of Lehman. In the case of AIG, financial market
participants were keenly aware that many major financial institutions around
the world were insured by or had lent funds to the company. The company's
failure would thus likely have led to a further sharp decline in confidence in
the global banking system and possibly to the collapse of other major financial
institutions. At best, the consequences of AIG's failure would have been a
significant intensification of an already severe financial crisis and a further
worsening of economic conditions. Conceivably, its failure could have triggered
a 1930s-style global financial and economic meltdown, with catastrophic
implications for production, incomes, and jobs.
The Federal Reserve and the Treasury agreed that in the environment then
prevailing, AIG's failure would have posed unacceptable risks for the global
financial system and for our economy. Accordingly, the Federal Reserve, with the
full support of the Treasury, made a loan to AIG to prevent its failure. The
loan imposed tough terms; in addition, senior management was replaced, and
shareholders lost almost all of their investments. However, because the firm
avoided a declaration of bankruptcy, creditors of AIG were protected.
In my view, preventing the failure of AIG was the best of the very bad
options available, but it nevertheless involved major costs, including
financial risks to the taxpayer. The American people also quite correctly see
as unfair that AIG was saved from bankruptcy because of the dangers to the
system that its failure would have posed, even as many other companies,
including nonfinancial and smaller financial firms, have not received the same
treatment. Allowing AIG to at least partly avoid the discipline of the
marketplace also sets a bad precedent.
For these reasons, it is essential that we make changes to the financial
rules of the game to prevent a similar episode from occurring in the future.
First, we must ensure that all types of financial institutions, especially
large and interconnected ones like AIG, receive strong and effective government
oversight. AIG's regulatory oversight was limited, which allowed it to take
dangerous risks largely out of sight of federal regulators.
Second, the AIG experience demonstrates that federal regulators urgently
need a new set of procedures for dealing with a complex, systemically important
financial institution on the brink of failure. Such rules already exists for
banks: If a bank approaches insolvency, the FDIC is empowered to intervene as
needed to protect depositors, sell the bank's assets, and take any necessary
steps to prevent broader consequences to the financial system. However, for an
insurance conglomerate like AIG, or for a large financial holding company that
owns many subsidiary companies, these rules do not apply. Among other things, a
good system for resolving nonbank financial institutions would allow federal
regulators to unwind a failing company in ways that minimize disruptions in
financial markets. An effective regime would also provide the authorities
greater latitude to negotiate with creditors and to modify contracts entered
into by the company, including contracts that set bonuses and other compensation
for management. More generally, we need significant reforms to financial
regulation and financial practices that will reduce the risk of future
financial crises like the one we are currently experiencing. The Federal
Reserve strongly supports such reform efforts.
ConclusionThe current crisis has been one of the most difficult financial and economic
episodes in modern history. Recently we have seen tentative signs that the
sharp decline in economic activity may be slowing, for example, in data on home
sales, homebuilding, and consumer spending, including sales of new motor
vehicles. A leveling out of economic activity is the first step toward
recovery. To be sure, we will not have a sustainable recovery without a
stabilization of our financial system and credit markets. We are making
progress on that front as well, and the Federal Reserve is committed to working
to restore financial stability as a necessary step toward full economic
recovery.
I am fundamentally optimistic about our economy. Among its many intrinsic
strengths are universities and colleges like Morehouse, which help talented
students gain not only a command of a body of knowledge but also the capacity
to think creatively and independently. Institutions like this one train the
professionals, entrepreneurs, and leaders who will shape our economy in the
future. Today's economic conditions are difficult, but the foundations of our
economy are strong, and we face no problems that cannot be overcome with
insight, patience, and persistence. The Federal Reserve will certainly do its
part to help restore prosperity and opportunity to our economy.

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