By Alex Tarrant
Incoming Reserve Bank Governor Graeme Wheeler will keep a closer eye on asset prices and has been given a more specific inflation target than his predecessor.
The Government and Reserve Bank have also made it clearer that it may be appropriate to use monetary policy - ie. the Official Cash Rate - to lean against the build-up of financial imbalances to prevent sharper economic cycles in the future.
The mandate to keep a closer eye on asset prices implies the Reserve Bank might hike the OCR earlier than it did during the 2000s in response to another house price boom.
Signing a new Policy Targets Agreement (PTA) with the Finance Minister on Thursday, Wheeler was given a focus to keep future inflation near the 2% mid-point of a 1-3% target band on average over the medium term.
The previous PTA signed between English and outgoing Governor Alan Bollard, which also called for the 1-3% band, did not include the 2% focus. Wheeler said that focus on that midpoint would help better anchor inflation expectations.
Finance Minister Bill English said some additional wording in the PTA had been agreed to with the new Governor to reflect lessons from New Zealand’s last economic cycle and the Global Financial Crisis.
The new PTA includes a stronger focus on financial stability, by including asset prices in the range of indicators the Bank monitors, and requiring the Bank to have regard to the soundness and efficiency of the financial system in setting monetary policy, English and Wheeler said.
"The PTA’s stronger focus on financial stability makes it clearer that it may be appropriate to use monetary policy to lean against the build-up of financial imbalances, if the Reserve Bank believes this could prevent a sharper economic cycle in the future,” Wheeler said in a statement.
Despite the new wording in the PTA, the Reserve Bank has effectively been following this line since the financial crisis. Outgoing Governor Alan Bollard has said that, in retrospect, the Reserve Bank should have started raising the Official Cash Rate sooner than it did in the early 2000s.
Earlier this year, Assistant Governor John McDermott said in a speech that the Bank was taking more notice of credit growth data when deciding whether to raise the Official Cash Rate to cool price rises, following last decade's house price boom.
If this were the case before the boom began in 2002/03, the Bank would likely have raised the OCR sooner in its effort to douse the rampant housing market, McDermott indicated in a speech to the Bank for International Settlements in Hong Kong in June.
'OCR could be hiked even if inflation low'
Westpac chief economist Dominick Stephens said that, along with the 2% mark tightening the definition of price stability, the other key change was the requirement to monitor asset prices.
"The RBNZ would now have a mandate to increase interest rates in response to a house price boom, even if consumer price inflation was low," Stephens said.
"Were this PTA in place last decade, the RBNZ would have been able to hike interest rates earlier in response to the house price boom (which we think would have produced better results). Equally, the RBNZ would have a mandate to lower interest rates if falling asset prices were a threat to the financial system, even if consumer price inflation were on target," he said.
"In a similar vein, the RBNZ has been required to take into account the soundness of the financial system when setting monetary policy. This would allow the RBNZ to increase interest rates if it felt, for example, that excessive credit growth was imperilling the financial system."
To some extent, these changes were "fighting the last battle" - last decade's dangerous build-up of asset prices and financial system imbalances would be easier to combat under this PTA, Stephens said.
"But there is also relevance for today. Inflation is currently low (but forecast to return quickly to 2%), while house prices are rising at a decent clip. If the housing market heated up further, the new Governor may be willing to increase interest rates. Indeed, Mr Wheeler emphasised that 'it may be appropriate to use monetary policy [interest rates] to lean against the build-up of financial imbalances,'" he said.
So more of a focus on house prices?
The Consumers Price Index - the measure of inflation released quarterly by Statistics New Zealand to indicate changes in the general level of prices, and which the Reserve Bank's primary task is measured against - only captures a portion of house price changes.
The CPI measures the price changes for the purchase of new housing - new residential builds - not overall house price measures like those released by the Real Estate Institute of New Zealand each month.
The CPI does, however, capture rents.
The Reserve Bank has worked with the Institute over recent years to develop a stratified house price index to better help capture trends in house price movement across New Zealand.
New tools
Wheeler also emphasised that the macro-prudential policy tools currently being developed by the Bank should be separate from, but complementary to monetary policy.
“The primary purpose of such tools will remain to promote stability of the financial system," he said.
Westpac's Stephens interpreted these comments as Wheeler hosing down the possibility of deploying 'alternative tools' instead of the OCR.
"He endorsed the RBNZ's current stance, which is that alternative tools will be separate from monetary policy and would mainly be used to promote stability of the financial system," Stephens said.
Here is the text of the new PTA:
This agreement between the Minister of Finance and the Governor of the Reserve Bank of New Zealand (the Bank) is made under section 9 of the Reserve Bank of New Zealand Act 1989 (the Act). The Minister and the Governor agree as follows:
1. Price stability
- Under Section 8 of the Act the Reserve Bank is required to conduct monetary policy with the goal of maintaining a stable general level of prices.
- The Government's economic objective is to promote a growing, open and competitive economy as the best means of delivering permanently higher incomes and living standards for New Zealanders. Price stability plays an important part in supporting this objective.
2. Policy target
- In pursuing the objective of a stable general level of prices, the Bank shall monitor prices, including asset prices, as measured by a range of price indices. The price stability target will be defined in terms of the All Groups Consumers Price Index (CPI), as published by Statistics New Zealand.
- For the purpose of this agreement, the policy target shall be to keep future CPI inflation outcomes between 1 per cent and 3 per cent on average over the medium term, with a focus on keeping future average inflation near the 2 per cent target midpoint.
3. Inflation variations around target
- For a variety of reasons, the actual annual rate of CPI inflation will vary around the medium-term trend of inflation, which is the focus of the policy target. Amongst these reasons, there is a range of events whose impact would normally be temporary. Such events include, for example, shifts in the aggregate price level as a result of exceptional movements in the prices of commodities traded in world markets, changes in indirect taxes, significant government policy changes that directly affect prices, or a natural disaster affecting a major part of the economy.
- When disturbances of the kind described in clause 3(a) arise, the Bank will respond consistent with meeting its medium-term target.
4. Communication, implementation and accountability
- On occasions when the annual rate of inflation is outside the medium-term target range, or when such occasions are projected, the Bank shall explain in Policy Statements made under section 15 of the Act why such outcomes have occurred, or are projected to occur, and what measures it has taken, or proposes to take, to ensure that inflation outcomes remain consistent with the medium-term target.
- In pursuing its price stability objective, the Bank shall implement monetary policy in a sustainable, consistent and transparent manner, have regard to the efficiency and soundness of the financial system, and seek to avoid unnecessary instability in output, interest rates and the exchange rate.
- The Bank shall be fully accountable for its judgements and actions in implementing monetary policy.
Read the release from English and Wheeler below:
Finance Minister Bill English and incoming Reserve Bank Governor Graeme Wheeler today signed a new Policy Targets Agreement, which sets out specific targets for maintaining price stability.
The new Policy Targets Agreement takes effect on 26 September, when Mr Wheeler starts his five-year term as Governor.
The agreement continues to require the Reserve Bank to keep CPI inflation between 1 per cent and 3 per cent on average over the medium term.
Within this target, the new agreement now requires the Bank to focus on keeping future average inflation near 2 per cent.
The PTA also includes a stronger focus on financial stability, by including asset prices in the range of indicators the Bank monitors, and requiring the Bank to have regard to the soundness and efficiency of the financial system in setting monetary policy.
“I believe that the existing policy targets agreement has served New Zealand well and there are benefits in maintaining consistency in the agreement,” Mr English says. “Therefore, I did not feel that any major changes were required.
“However, the Global Financial Crisis has focused some attention on monetary policy frameworks, and I want to ensure the PTA continues to reflect best international practice.
“Consequently, some additional wording has been agreed with the new Governor to reflect lessons from New Zealand’s last economic cycle and the Global Financial Crisis.
“As we’ve said before, the Government is also working with the Reserve Bank and Treasury to assess whether further macro-prudential tools could help moderate credit cycles, by building additional resilience when it is likely to be needed. That work will continue.”
Mr Wheeler says the new PTA remains focused on maintaining price stability, as well as avoiding unnecessary instability in economic output, interest rates and the exchange rate.
“The focus on the 2 per cent midpoint will help better anchor inflation expectations,” he says.
“In addition, the PTA’s stronger focus on financial stability makes it clearer that it may be appropriate to use monetary policy to lean against the build-up of financial imbalances, if the Reserve Bank believes this could prevent a sharper economic cycle in the future.”
Mr Wheeler also emphasised that the macro-prudential policy tools currently being developed by the Bank should be separate from, but complementary to monetary policy. “The primary purpose of such tools will remain to promote stability of the financial system.”
Mr Wheeler will send a letter to the Finance Minister setting out how he plans to manage his relationship with the Minister, recognising the Bank’s operational independence.
“It will ensure the Government and the Reserve Bank keep each other fully informed about fiscal and monetary policy issues,” he says.
Wheeler takes up the Governorship of the Bank on September 26, replacing Alan Bollard, who held the role for ten years. Reserve Bank Governor terms are for five years. He will not be commenting on the PTA until he takes up the new role.
Reserve Bank Act
The Policy Targets Agreement (PTA) is mandated by Section 9 of the Reserve Bank of New Zealand Act 1989. The Act legislates "the Reserve Bank is required to conduct monetary policy with the goal of maintaining a stable general level of prices."
The PTA is effectively a contract between the Governor of the Bank and the Government, setting out the change in the level of prices the Reserve Bank should target over the medium term.
Other roles and powers given to the Reserve Bank, such as foreign exchange intervention, issuance of currency, and financial supervision, are dealt with in the Act itself.
The Reserve Bank Act allows the government to override the PTA and direct the Bank to use monetary policy for a completely different primary objective than price stability - for a 12 month period (for which a new PTA outlining the different targets must be signed), and only if the order is made public.
If a new PTA cannot be negotiated - both the Governor and Minister of Finance have to agree on it - then the Governor can be dismissed.
Read our preview of the announcement here.
Read a Reserve Bank factsheet on the Policy Targets Agreement here.
Below is the previous Policy Targets Agreement between English and Alan Bollard:
This agreement between the Minister of Finance and the Governor of the Reserve Bank of New Zealand (the Bank) is made under section 9 of the Reserve Bank of New Zealand Act 1989 (the Act). The Minister and the Governor agree as follows:
- Price stability
- Under Section 8 of the Act the Reserve Bank is required to conduct monetary policy with the goal of maintaining a stable general level of prices.
- The Government's economic objective is to promote a growing, open and competitive economy as the best means of delivering permanently higher incomes and living standards for New Zealanders. Price stability plays an important part in supporting this objective.
- Policy target
- In pursuing the objective of a stable general level of prices, the Bank shall monitor prices as measured by a range of price indices. The price stability target will be defined in terms of the All Groups Consumers Price Index (CPI), as published by Statistics New Zealand.
- For the purpose of this agreement, the policy target shall be to keep future CPI inflation outcomes between 1 per cent and 3 per cent on average over the medium term.
- Inflation variations around target
- For a variety of reasons, the actual annual rate of CPI inflation will vary around the medium-term trend of inflation, which is the focus of the policy target. Amongst these reasons, there is a range of events whose impact would normally be temporary. Such events include, for example, shifts in the aggregate price level as a result of exceptional movements in the prices of commodities traded in world markets, changes in indirect taxes, significant government policy changes that directly affect prices, or a natural disaster affecting a major part of the economy.
- When disturbances of the kind described in clause 3(a) arise, the Bank will respond consistent with meeting its medium-term target.
- Communication, implementation and accountability
- On occasions when the annual rate of inflation is outside the medium-term target range, or when such occasions are projected, the Bank shall explain in Policy Statements made under section 15 of the Act why such outcomes have occurred, or are projected to occur, and what measures it has taken, or proposes to take, to ensure that inflation outcomes remain consistent with the medium-term target.
- In pursuing its price stability objective, the Bank shall implement monetary policy in a sustainable, consistent and transparent manner and shall seek to avoid unnecessary instability in output, interest rates and the exchange rate.
- The Bank shall be fully accountable for its judgements and actions in implementing monetary policy.
Economist reactions
Here's the First Impressions on the new PTA from Westpac Chief Economist Dominick Stephens
Today the Minister of Finance Bill English and RBNZ Governor-Designate Graeme Wheeler signed a new Policy Targets Agreement (PTA). The Reserve Bank Act states that the Governor is accountable for maintaining price stability. The PTA provides the practical definition of "price stability". There have been a couple of quite significant changes compared to the PTAs that prevailed under Alan Bollard. In our judgement, the balance of these changes amounts to a "tightening" of the definition of price stability.
This is a real break from previous PTA renegotiations, which have tended to loosen the definition of price stability and give the Governor more latitude. Under the last PTA, the target was to keep future consumer price inflation between 1% and 3% on average over the medium term. In the early part of his Governorship, Dr Bollard chose to use the full latitude of that range, consciously allowing inflation to rise towards 3% on average. But the new PTA is tighter.
The Governor is now required to focus on the 2% mid-point of the target range. 1% and 3% should now be considered contingencies, rather than permissible targets. Graeme Wheeler commented that this will better anchor inflation expectations, and we tend to agree (surveyed inflation expectations have been closer to 3% than 2% most of the time in recent years). Another key change is a requirement to "monitor" asset prices. The RBNZ would now have a mandate to increase interest rates in response to a house price boom, even if consumer price inflation was low. Were this PTA in place last decade, the RBNZ would have been able to hike interest rates earlier in response to the house price boom (which we think would have produced better results).
Equally, the RBNZ would have a mandate to lower interest rates if falling asset prices were a threat to the financial system, even if consumer price inflation were on target. In a similar vein, the RBNZ has been required to take into account the soundness of the financial system when setting monetary policy. This would allow the RBNZ to increase interest rates if it felt, for example, that excessive credit growth was imperilling the financial system.
To some extent, these changes are "fighting the last battle" - last decade's dangerous build-up of asset prices and financial system imbalances would be easier to combat under this PTA. But there is also relevance for today. Inflation is currently low (but forecast to return quickly to 2%), while house prices are rising at a decent clip.
If the housing market heated up further, the new Governor may be willing to increase interest rates. Indeed, Mr Wheeler emphasised that "it may be appropriate to use monetary policy [interest rates] to lean against the build-up of financial imbalances."
There has been discussion recently about the possibility of deploying "alternative tools" instead of the OCR. Mr Wheeler's comments seemed to hose these ideas down a bit. He endorsed the RBNZ's current stance, which is that alternative tools will be separate from monetary policy and would mainly be used to promote stability of the financial system.
Ben Jarman from JP Morgan Australia:
Incoming RBNZ Governor, Graeme Wheeler, together with Finance Minister Bill English signed a new Policy Targets Agreement (PTA) today, formalizing the policy objectives for Governor Wheeler’s first five year term. The new agreement is pretty well summarized by Mr English’s statement that he “did not feel that any major changes were required.” The PTA is always given a little spring cleaning coming into a new term, and the changes that have been made today are not surprising, and should prove cosmetic in most circumstances given how we believe the Bank already exercises policy in practice.
Price stability, specifically, the requirement of keeping CPI inflation “between 1 percent and 3 percent on average over the medium term” remains front and centre. But this has now been supplemented by the requirement of “keeping future average inflation near 2 percent”. This is clearly an attempt to galvanize inflation expectations at the mid-point of the target band, but in practice is basically redundant. The horizon for “future inflation” is similarly vague to “medium term”, and any reasonable monetary policy reaction function that was targeting the 1%-3% band should be aiming “near” 2% anyway.
There is also a reference to diminishing unnecessary volatility in “output, interest rates and the exchange rate”. It is far from automatic that a point target for inflation achieves that, particularly for a small open economy, which is prone to being buffeted by external shocks. If anything, a harder policy target could, in the presence of external shocks, prove counterproductive to stability, and while the incoming Governor is somewhat of an unknown commodity, we doubt that the incumbent top brass at the RBNZ would fall into the trap of over-engineering the cycle, which should render that tweak to the PTA also somewhat toothless.
The most significant alteration is that the new PTA embeds asset prices and financial stability into the policy targeting mix, though even this is more subtle in the official document than it is made to sound in the Finance Minister’s press release. The RBNZ already has macro-prudential responsibilities, and the requirement of implementing policy with regard to “the efficiency and soundness of the financial system” falls into the “communication, implementation and accountability” section, rather than the policy targets section itself. Plus, once you’ve decided to mention financial stability at all, it’s hard to imagine what the alternative to pursuing “soundness” in monetary policy could reasonably have been either.
The explicit reference to asset prices, which now are pushed into the bucket of the “general level of prices” the Bank will “monitor” looks to have somewhat deeper implications for the ideology of policy. We suspect that in most circumstances though, the punch-line will be whether asset price dynamics have implications for future CPI inflation, and we know that is already a big part of the way the RBNZ thinks about policy anyway. The lessons of the housing boom in the middle of the last decade, and the associated hangover, which has been a huge drag on real activity, are well-appreciated. And from a formal perspective, the RBNZ’s DSGE modeling has explicitly incorporated the link between house prices, household wealth, consumption, and CPI inflation for several years now. So we see the asset price consideration as being a fairly redundant constraint given that policy already is set with a broad view on the determinants of future inflation.
The asset price remarks are more interesting, though, in the current context, in which expectations for the first RBNZ rate hike are pushing deeper into 2013, while the housing market is a clear bright spot of activity. If we take the RBNZ’s model transmission seriously, the question is whether the improvement in housing market activity starts transmitting to genuine strength in consumption outcomes. Here we think there’s not much to get excited about yet. The housing market is frothing up, but only in Auckland, New Zealand’s largest city, and in Canterbury, where there is the obvious catalyst of earthquake reconstruction activity. We suspect that a situation of increasing rents and prices in those pockets of the nation will be respected as relative price shifts that reflect supply-side fundamentals, and do not have broader inflationary implications. The better news on housing does, though, represent another factor that will make the new Governor reluctant to cut the OCR below the current level of 2.50%.
(Updated with statements from Wheeler, full PTA, and reaction from Westpac's Stephens)
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