The world economy
The risks ahead for the world economy
Sep 9th 2004
From The Economist print edition
Fred Bergsten explains why policymakers need to act now in
order to avert the danger of serious damage to the world
economy
FIVE
major risks threaten the world economy. Three centre on the
United States: renewed sharp increases in the
current-account deficit leading to a crash of the dollar; a
budget profile that is out of control; and an outbreak of
trade protectionism. A fourth relates to China, which faces
a possible hard landing from its recent overheating. The
fifth is that oil prices could rise to $60-70 per barrel
even without a major political or terrorist disruption, and
much higher with one.
Most of these risks reinforce each other. A further oil
shock, a dollar collapse and a soaring American budget
deficit would all generate much higher inflation and
interest rates. A sharp dollar decline would increase the
likelihood of further oil price rises. Larger budget
deficits will produce larger American trade deficits, and
thus more protectionism and dollar vulnerability.
Realisation of any one of the five risks could substantially
reduce world growth. If two or three, let alone all five,
were to occur in combination then they would radically
reverse the global outlook.
There is still time to head off each of these risks.
Decisions made in America immediately after this year's
elections will be pivotal. China, the new growth locomotive,
is key to resolving the global trade imbalances and must
play a central role in future. Action by a number of other
countries will be essential to maintain global growth and to
avoid deeper oil shocks and new trade restrictions.
The most alarming new prospect is another sharp
deterioration in America's current-account deficit. It has
already reached an annual rate of $600 billion, well above
5% of the economy. New projections by my colleague Catherine
Mann (see chart 1) suggest it will now be rising again by a
full percentage point of GDP per
year, as actually occurred in 1997-2000. On such a
trajectory, the deficit would exceed $1 trillion per year by
2010.
There are three reasons for this dismal prospect. First,
American merchandise imports are now almost twice as large
as exports; hence exports would have to grow twice as fast
as imports merely to halt the deterioration. (In the past,
such a relationship occurred only after the massive fall
experienced by the dollar in 1985-87.) Second, economic
growth is likely to remain faster in America than in its
major markets and higher incomes there increase demand for
imports much faster than income growth elsewhere increases
demand for American exports. Third, America's large debtor
position (it currently is in the red by more than $2.5
trillion) means that its net investment income payments to
foreigners will escalate steadily, especially as interest
rates rise.
Of
course, it is virtually inconceivable that the markets will
permit such deficits to eventuate. The only issue is how
they are to be averted. An immediate resumption of the
gradual decline of the dollar, as in the period 2002-03,
cumulating in a fall of at least another 20%, is needed to
reduce the deficits to sustainable levels.
If
delayed much longer, the dollar's inevitable fall is likely
to be much larger and much faster. Moreover, much of the
slack in America's product and labour markets will probably
have disappeared in a year or so. Sharp dollar depreciation
at that stage would push up inflation and macroeconomic
models suggest that American interest rates could even hit
double digits.
The situation would be still worse if future increases in
energy prices and the budget deficit compound such
developments, as they surely could. The negative impact
would also be much greater in other countries because of
their need to generate larger and faster domestic demand
increases in order to offset declining trade surpluses.
Fears of a hard landing for the dollar and the world economy
are of course not new. The situation is much more ominous
today, however, because of the record current-account
deficits and international debt, and the high probability of
further rapid increases in both. The potential escalation of
oil prices suggests a parallel with the dollar declines of
the 1970s, which were associated with stagflation, rather
than the 1980s when a sharp fall in energy costs and
inflation cushioned dollar depreciation (but still produced
higher interest rates and Black Monday for the stockmarket).
Paul Volcker, former chairman of the Federal Reserve,
predicts with 75% probability a sharp fall in the dollar
within five years.
The prospects for the budget deficit and trade protectionism
further darken the picture. Official projections score the
fiscal imbalance at a cumulative $5 trillion over the next
decade, but exclude probable increases in overseas military
and homeland-security expenditures, extension of the recent
tax cuts and new entitlement increases proposed by both
presidential candidates. This deficit could also approach $1
trillion per year (see chart 2), yet there is no serious
discussion of how to restore fiscal responsibility, let
alone an agreed strategy for reining in runaway entitlement
programmes (especially Medicare).
Different deficits
The budget and current-account deficits are not “twin”. The
budget in fact moved from large deficit in the early 1990s
into surplus in 1999-2001, while the external imbalance
soared anew. But increased fiscal shortfalls, especially
with the economy nearing full employment, will intensify the
need for foreign capital. The external deficit would almost
certainly rise further as a result.
Robert Rubin, former secretary of the Treasury, also
stresses the psychological importance for financial markets
of expectations concerning the American budget position. If
that deficit is viewed as likely to rise substantially,
without any correction in sight, confidence in America's
financial instruments and currency could crack. The dollar
could fall sharply as it did in 1971-73, 1978-79, 1985-87
and 1994-95. Market interest rates would rise substantially
and the Federal Reserve would probably have to push them
still higher to limit the acceleration of inflation.
These risks could be intensified by the change in leadership
that will presumably take place at the Federal Reserve Board
in less than two years, inevitably creating new
uncertainties after 25 years of superb stewardship by Mr
Volcker and Alan Greenspan. A very hard landing is not
inevitable but neither is it unlikely.
The third component of the “America problem” is trade
protectionism. The leading indicator of American protection
is not the unemployment rate, but rather overvaluation of
the dollar and its attendant external deficits, which
sharply alter the politics of trade policy. It was domestic
political, rather than international financial, pressure
that forced previous administrations (Nixon in 1971, Reagan
in 1985) aggressively to seek dollar depreciation. The
hubbub over outsourcing and the launching of a spate of
trade actions against China are the latest cases in point.
The current-account, and related budget, imbalances may not
be sustainable for much longer, even if foreign investors
and central banks prove willing to continue funding them for
a while.
The fourth big risk centres on China, which has accounted
for over 20% of world trade growth for the past three years.
Fuelled by runaway credit expansion and unsustainable levels
of investment, which recently approached half of
GDP, Chinese growth must slow. The
leadership that took office in early 2003 ignored the
problem for a year. It has finally adopted a peculiar mix of
market-related policies, such as higher reserve requirements
for the banks, and traditional command-and-control
directives, such as cessation of lending to certain sectors.
The ultimate success of these measures is highly uncertain.
Under the best of circumstances, China's expansion will
decelerate gradually but substantially from its recent 9-10%
pace. When the country cooled its last excessive boom after
1992, growth declined for seven straight years. A truly hard
landing could be much more abrupt and severe. Either outcome
will, to a degree, counter the inflationary and
interest-rate consequences of the other global risks. But a
slowdown, and especially a hard landing, in China would
sharply reinforce their dampening effects on world growth.
The fifth threat is energy prices. In the short run, the
rapid growth of world demand, low private inventories,
shortages of refining and other infrastructure (particularly
in America), continued American purchases for its strategic
reserve and fears of supply disruptions have outstripped the
possibilities for increased production. Hence prices have
recently hit record highs in nominal terms. The impact is
extremely significant since every sustained rise of $10 per
barrel in the world price takes $250 billion-300 billion
(equivalent to about half a percentage point) off annual
global growth for several years. Mr Greenspan frequently
notes that all three major post-war recessions have been
triggered by sharp increases in the price of oil.
My
colleague Philip Verleger concludes that this lethal
combination could push the price to $60-70 per barrel over
the next year or two, perhaps exceeding the record high of
1980 in real terms. Gasoline prices per gallon in America
would rise from under $2 now to $2.60 in 2006. Prices would
climb even more if political or terrorist events were
further to unsettle production in the Middle East, the
former Soviet Union or elsewhere.
Curtail the cartel
The more fundamental energy problem is the oligopolistic
nature of the market. The OPEC cartel
in general, and dominant supplier Saudi Arabia in
particular, restrict supply in the short run and output
capacity in the long run to maintain prices far above what a
competitive market would generate. They do not always
succeed and indeed have suffered several sharp price falls
over the past three decades. They are often unable to
counter excessive price escalation when they want to, as at
present.
Primarily due to the cartel, however, the world price has
averaged about twice the cost of production over the past
three decades. The recent price above $40 per barrel
compares with production charges of $15-20 per barrel in the
highest-cost locales and much lower marginal costs in many
OPEC countries. This underlying
problem also looks likely to get worse, as the Saudis have
talked openly about increasing their target range from the
traditional $22-28 per barrel to $30-40.
There is a high probability that one or more of these risks
to global prosperity and stability will eventuate. The
consequences for the world economy of several of them
reinforcing each other are potentially disastrous. All five
risks can be avoided, however, or their adverse effects at
least substantially dampened, by timely policy actions. The
most important single step is for the president of the
United States to present and aggressively pursue a credible
programme to cut the federal budget deficit at least in half
over the coming four years and to sustain the improvement
thereafter. This will require a combination of spending
cuts, revenue increases and procedural changes (including
the restoration of “PAYGO” rules in
Congress), as well as rapid economic growth.
Such a programme would maximise the prospects for
maintaining solid growth in America and the world by
avoiding the crowding out of private-sector investment and
by reducing the likelihood of higher interest rates. It
would represent the best insurance against a hard landing
via the dollar, by buttressing global confidence in the
American economy. It should be feasible, having been more
than accomplished during the 1990s. Its absence would
virtually assure realisation of at least some of the
inter-related global risks within the next presidential
term.
An
energy stability pact
America and its allies must also move decisively on energy.
Sales from their strategic reserves, which total about 1.3
billion barrels (including 700m in the United States), would
reverse the recent price increases for at least a while and
demonstrate a willingness to counter OPEC.
For the longer run, America must expand production
(including in Alaska) and increase conservation (especially
for motor vehicles). Democrats and Republicans must together
take the political heat of establishing a gasoline, carbon
or energy tax that will limit consumption, help protect the
environment and reduce the need for future military
interventions abroad.
The most effective “jobs programme” for any American
administration and the world as a whole, however, would be
an initiative to align the global oil price with levels that
would result from market forces. America should therefore
seek agreement among importing countries (including China,
India and other large developing importers as well as
industrialised members of the International Energy Agency)
to offer the producers an agreement to stabilise prices
within a fairly wide range centred at about $20 per barrel.
Consumers would buy for their reserves to avoid declines
below the floor of the range and sell from those reserves to
preserve its ceiling. A sustained cut of $20 per barrel in
the world price could add a full percentage point to annual
global growth for at least several years. The resultant
stabilisation of price swings would avoid the periodic
spikes (in both directions) that tend to trigger huge
economic disruption. Producers would benefit from these
global economic gains, from their new protection against
sharp price falls and from trade concessions that could be
included in the compact to help them diversify their
economies.
China must also play a central role in protecting the global
outlook. Fortunately, it can resolve its internal
overheating problem and contribute substantially to the
needed global rebalancing through the single step of
revaluing the renminbi by 20-25%. Such a currency adjustment
would simultaneously address all of China's domestic
troubles: dampening demand (for its exports) by enough to
cut economic growth to the official target of 7%; countering
inflation (now approaching double digits for inter-company
transactions) directly by cutting prices of imports; and
checking the inflow of speculative capital that fuels
monetary expansion.
A
sizeable renminbi revaluation is also crucial for global
adjustment because much of the further fall of the dollar
needs to take place against the East Asian currencies. These
have risen little if at all, although their countries run
the bulk of the world's trade surpluses. China has greatly
intensified the problem by maintaining its dollar peg and
riding the dollar down against most other currencies,
further improving its competitiveness. Other Asian
countries, from Japan through India, have thus intervened
massively to keep their currencies from appreciating against
the dollar (and, with it, against the renminbi). This has
severely limited correction of the American deficit and
thrown the corresponding surplus reduction on to Europe and
a few others with freely flexible exchange rates. China
should reject the US/G-7/IMF
advice to float its currency, which is far too risky in
light of its weak banking system and could even produce a
weaker renminbi, and opt instead for a substantial one-shot
revaluation. It should in fact take the lead in working out
an “Asian Plaza Agreement” to ensure that all the major
Asian countries make their necessary contributions to global
adjustment.
Countries that undergo currency appreciation, and thus face
reductions in their trade surpluses, will need to expand
domestic demand to sustain global growth. China need not do
so now because it must cool its overheated economy. But the
other surplus countries, including Japan and the euro area,
will have to implement structural reforms and new
macroeconomic policies to pick up the slack. America and the
surplus countries should also work together to forge a
successful Doha round, renewing the momentum of trade
liberalisation and reducing the risks of protectionist
backsliding.
Risk
in our times
The global economy faces a number of major risks that,
especially in combination, could throw it back into rapid
inflation, high interest rates, much slower growth or even
recession, rising unemployment, currency conflict and
protectionism. Even worse contingencies could of course be
envisaged: a terrorist attack with far larger economic
repercussions than September 11th or a sharp slowdown in
American productivity growth, as occurred after the oil
shocks of the 1970s, that would further undermine the
outlook for both economic expansion and the dollar.
Fortunately, policy initiatives are available that would
avoid or minimise the costs of the most evident risks.
America will be central to achieving such an outcome and the
president and Congress will have to decide in early 2005
whether to address these problems aggressively or simply
avert their eyes and hope for the best, taking major risks
with their own political futures as well as with the world
economy. China will have to play a new and decisive
leadership role. The major oil producers and the other large
economies must do their part. The outlook for the global
economy for at least the next few years hangs in the
balance.